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NEGATIVE 
NO.  95-82360 


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Author: 


Odum,  Howard 
Washington 

Title: 

Attainable  standards  in 
municipal  programs 

Place: 

Chapel  Hill 

Date: 

1921 


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VOL.  I,  VO.  7 


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UNIVERSITY  EXTENSION  DIVISION 


University  OF  North  Carolina 
Extension  Bulletin 

LxBRARY 
SCHOOL  OF  BUSINESS 


/'V*^ 


ATTAINABLE  STANDARDS 
IN  MUNICIPAL  PROGRAMS 


no 


PUBLISHED  BY  THE  UNTVERSITY 

Entered  as  Second-class  Matter,  Sept.  1,  1921 

CHAPEL  HILL.  N.  0. 


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Cdnmbta  (Hnibmftp 


LIBRARY 


School  of  Business 


UNIVERSITY  EXTENSION  DIVISION 


University  OF  North  Carolina 
Extension  Bulletin 


LIBRARY 
SCHOOL  OF  BUSINESS 

ATTAINABLE    STANDARDS 
IN  MUNICIPAL  PROGRAMS 


A  Partial  Report  of  the  First  Regional  Conference 

OF  Town  and  County  Administration 

Held  at  Chapel  Hill,  September  19,  20,  21,  1921 


Prepared  by 
HOWARD  W.  ODUM,  Ph.  D. 

Kenan  Professor  of  Sociology  and  Director  of  the 
School  of  Public  Welfare 


PUBLISHED  BY  THE  UNIVERSITY 

Entered  as  Second-class  Matter,  Sept.  1,  1921 

CHAPEL  HILL,  N.  C. 


Administration 

Appropriations-May  1.1920  TO  May3I,I92I  •18.728.00 


Distribution  of  Estimated  Expenditures 

For  13  Months 


Distribution  of  estimated  expenditures  for  a  ITortli  Carolina 
small  city. 

See  pages  73-81. 


ir 


TABLE  OF  CONTENTS 


INTRODUCTION 

PAGE 

Purposes  op  the  First  Regional  Conference  on  Town  and  County 

Adbanistration 5 

President  Harry  WooDBURN  Chase  TO  THE  Conference 10 

Professor  E.  C.  Branson  to  the  Conference 11 

CHAPTER  I 

Attainable  Standards  of  Active  CiTizENsmp  and  Study. 

Messages  from  President  Harding,  Mr.  Hoover,  Mr.  Daniels,  Mr. 
Baker  and  others 12 

Greetings  from  the  League  of  Minnesota  Municipalities      ....     14 

Editorials  from  the  Greensboro  News,  the  Raleigh  News  and  Observer 
and  the  AshevUle  Citizen 14 

Address:  Attainable  Standards  of  Public  Welfare  by  President  W.  L. 
Poteat  of  Wake  Forest  College 17 

The  University  Series  in  Training  for  Citizenship 20 

CHAPTER  II 

Attainable  standards  of  Mutwcipal  Social  Services. 

Area,  Situation,  General  Administration,  Financial  Organization, 
Town  Planning,  Sanitation  and  Housing,  Public  Health.  Public 
Welfare,  PubUc  Safety,  PubUc  Works  and  Utilities,  PudHc  Re- 
creation, Public  Education,  Voluntary  and  Civic  Services,  Ser- 
vices to  the  Rural  Community    23 

CHAPTER  III 

Forms  of  Municipal  Government. 

Progress  in  Municipal  Government  in  the  United  States:  H.  W. 
Dodds,  Secretary,  The  National  Municipal  League 28 

The  Commission  Form  of  Government  and  others:  T,  B.  Eldridge, 
Mayor  of  Raleigh 31 

City  Manager  Government  in  Durham:  R.  W.  Rigsby,  City  Man- 
ager       33 

TheCity  Manager  Plan  in  Hickory:  R.  G.Henry,  City  Manager    .    .     35 

r      Progress  in  Goldsboro  under  the  City  Manager  Plan:  W.  M.  Rich, 

P*        City  Manager 37 

Elizabeth  City  and  the  Outlook:  J.  B.  Fereebee,  City  Manager     .     .     41 

Westerville,  Ohio;  Report:  R.  W.  Orebaugh,  City  Manager  .   .     .     .41 


CHAPTER  IV 

PAGE 

Attainable  Stajtoards  in  Finance. 

Introductory  Statement:  D.  D.  Carroll,  Dean  of  the  School  of  Com- 
merce, University  of  North  Carolina 45 

The  1921  Special  Session 45 

The  North  Carolina  Municipal  Finance  Act— An  Interpretation:  A. 
C.  Mcintosh,  Professor  of  Law,  University  of  North  Carolina     .      .     46 

A  Critical  Review  of  the  North  Carolina  Finance  Act:  Arthur  N.  Pier- 
son,  Member  General  Assembly,  New  Jersey 54 

Problems  of  Municipal  Finance  in  North  Carolina:  Gallatin  Rob- 
erts, President  of  the  North  Carolina  Municipal  Association,  May- 
or of  AsheviUe ^1 

State  Supervision  of  Local  Accounts:  T.  H.  Waddell,  Director  of  Ac- 
coimts,  Massachusetts  State  Department 66 

Budget-making  and  the  Citizen's  Interest:  Lionel  Weil,  Chairman 
Finance  Committee,  Goldsboro 73 

Interpretation  of  Local  Government  in  Terms  of  Accoimting:  Bax- 
ter Durham,  State  Auditor,  North  Carohna 84 

The  1921  Bonding  Act 91 

CHAPTER  V 

Attainable  Standards  in  General  Social  Services. 

Aspects  of  City  Planning:  Morris  Knowles,  City  Planning  Engineer, 
Pittsburgh 94 

Attainable  Standards  for  Commercial  Organizations:  C.  W.  Roberts, 
President  of  the  North  Carolina  Commercial  Secretaries  ....     97 

The  Community  Council:  J.  F.  Steiner,  Professor  of  Social  Tcehnology 
University  of  North  Carolina 108 

Attainable  Standards  in  Commimity  Recreation:  E.  C.  Lindeman, 
Professor  of  Sociology  and  Economics,  Greensboro  College  for 
Women HI 

Attainable  Standards  for  the  Schools:  N.  W.  Walker,  Director  of  the 
University  Summer  School 113 

PubHc  Health,  PubUc  Welfare,  Libraries:  (See  County  Relation- 
ships)     

CHAPTER  VI 
County  and  Municipality. 

County  Government  and  Public  Education:  E.  C.  Brooks,  State 
Superintendent  of  Public  Instruction 114 

Attainable  Standards  in  Public  Welfare:  Mrs.  Clarence  A.  Johnson, 
Commissioner  of  Public  WeKare 118 

Standards  of  Pubhc  Health  Work:  W.  S.  Rankin,  State  Health  Offi- 
cer   122 

Attainable  Standards  of  County  Schools:  Edgar  W.  Knight,  Pro- 
fessor of  Rural  Education,  University  of  North  Carolina  .    .     .  122 

Attainable  Standards  of  Library  Work,  for  Town  and  County:  L.  R. 
Wilson,  Kenan  Professor  of  Library  Administration,  University 
of  North  Carolina 126 


li 


MUNICIPAL  PROGRAMS 


INTRODUCTION 

Perhaps  there  is  available  no  more  appropriate  introduction 
to  this  partial  statement  of  the  proceedings  of  the  First  Regional 
Conference  on  Town  and  County  Administration  than  the  follow- 
ing letter  received  by  the  University  Extension  Division. 

Gentlemen: 

I  like  the  motto  of  the  University:  "Come  to  the  University 
when  you  need  help."  I  need  help.  What  are  the  duties  of  the 
mayor  of  a  small  town? 

Yours  truly. 

If  this  inquiry  be  revised  to  read,  "What  are  the  duties  of 
the  mayor,  or  commissioner,  or  city  manager,  and  how  may  he 
perform  these  duties  faithfully,  keeping  in  mind  the  justice  and 
welfare  of  the  people  and  at  the  same  time  the  progress  and 
efficiency  of  his  town?"  it  will  become  typical  of  scores  of  situa- 
tions constantly  developing  and  obtaining  in  North  Carolina 
Municipal  Administration.  Here  is  another  mayor.  His  town  is 
in  debt.  It  has  little  money  to  pay  its  teachers  and  certain  other 
honorable  obligations.  Some  bonds  are  about  to  mature  and  there 
is  no  money  in  sight.  Its  streets  are  bad.  Its  public  works  and 
utilities  are  undeveloped  or  inefficient.  Its  children  bave  out- 
grown its  schoolhouse  as  does  the  small  boy  bis  clothes.  The 
people  are  not  interested  for  the  most  part.  Those  who  are 
interested  do  not  know.    Can  anyone  help? 

For  still  another  official  the  problem  is  stated  differently.  The 
people  are  interested,  deeply  interested,  and  eager  to  authorize 
the  necessary  progressive  measures.  Tbey  demand  that  their 
municipality  rank  with  the  best  in  its  municipal  social  services 
and  its  progressive  appeal  to  all  aspects  of  life.  They  want  the 
city  to  be  a  "better  place  in  which  to  live."  But  how  is  it  to  be 
done?  What  is  the  price  necessary  to  pay  for  the  increase  in 
taxes?  Wbat  are  the  possibilities  of  raising  revenue  for  permanent 
improvements?  What  are  the  limiting  laws  and  economic  condi- 
tions? What  is  the  best  form  of  government  to  utilize  in  the 
newer  plans  of  progress?     How  utilize  the  citizen  interest  and 


V 


6 


■  I 


Attabstable  Standards  in  Municipal  Pbogsams 


combine  all  efforts  in  the  development  of  a  greater  municipality? 
How  avoid  the  mistakes  made  by  other  municipalities  ? 

Still  others  reflect  the  complaint  of  the  people  that  taxes  must 
be  reduced.  What  then  is  the  price  to  be  paid  for  reducing  the 
taxes?  How  can  streets  and  utilities  and  health  and  the  public 
good  be  conserved  and  developed  without  money?  How  can  the 
town  make  progress  without  the  conservation  and  promotion  of 
the  public  good  ?  How  can  all  these  things  be  done  on  the  present 
financial  basis?  How  can  any  additional  finances  be  obtained? 
How  interest  the  people  in  services  more  than  taxes?  How  direct 
government  into  business  methods?  How  so  introduce  business 
methods  as  to  save  the  needed  money?  How  bring  additional 
wealth  into  the  community  for  more  taxes?  How  influence 
community  organization,  through  its  chamber  of  commerce  or 
other  possible  groups,  to  bring  about  the  desired  ends?  How 
make  taxes  profitable  and  appear  so  to  the  people? 

Other  queries  are  no  less  difficult,  specific  or  comprehensive. 
How  shall  administrative  officers  without  pay  devote  sufficient 
time  and  attention  to  municipal  problems  to  insure  success?  How 
can  executives,  without  pay,  become  informed  on  the  fundamentals 
of  administration  ?  As  phrased  by  one :  "How  am  I  to  carry  on 
my  own  business,  maintain  the  town  in  prosperity  and  safety, 
and  attend  conferences  on  methods  of  town  administration  ?"  How 
can  the  offices  be  magnified  so  as  to  attract  the  best  men?  How 
can  those  in  authority,  naturally  inexperienced  and  without  tech- 
mcal  knowledge,  attain  efficient  methods?  How  avoid  tremendous 
waste  of  money  because  of  efforts,  honest  and  industrious,  but 
undirected?  How,  finally,  direct  the  community  into  plans  and 
methods  executed  by  trained  officials  ?  And  how  find  the  trained 
officials  after  all?    How  and  when  can  they  be  trained? 

Other  individuals  and  other  groups  make  still  further  inquiries. 
Has  the  state  n^lected  its  municipalities?  Has  it  devoted  less 
attention  and  oversight  to  the  cities  than  it  has  to  the  country 
side?  Or  does  it  over-supervise  when  it  does  legislate?  Does 
the  state  give  sufficient  freedom  to  local  governing  bodies?  Is  there 
a  tendency  to  centralize  and  limit  self  government?  Does  the 
state  allow  municipalities  sufficient  leeway  in  planning  the  future 
revenues,  both  for  current  expense  and  permanent  improvements? 
Does  the  state  tax  the  larger  corporations  adequately  but  refuse 
to  allow  the  local  municipality  to  levy  adequate  taxes?  Does  the 
state  allow  municipalities  sufficient  lee-way  in  planning  the  future 
of  their  development  ?    Has  the  state,  in  its  progressive  programs 


i 


" 


University  of  !N"obth  Carolina  7 

for  education,  health,  public  welfare,  and  roads,  done  well  by 
its  towns  and  cities? 

Thus  arise  inquiries  from  individuals  and  groups,  both  in  and 
out  of  the  fifty-five  cities  of  census  size  in  I^orth  Carolina,  and 
from  the  413  incorporated  smaller  towns.  The  problems  stated 
apply  alike,  in  varying  degrees,  to  the  half-dozen  cities  with  more 
than  20,000  population;  to  the  fourteen  cities  with  more  than 
10,000  population;  to  the  forty  with  between  2500  and  10,000 
population ;  and  to  the  more  than  four  hundred  that  are  but  towns 
and  villages.  And  because  IN'orth  Carolina  is  becoming  also  a 
state  of  increasing  urban  life  the  challenge  to  make  ITorth  Caro- 
lina towns  typical  of  the  best  social  and  economic  life  of  the  state 
is  marked.  What  are  some  of  the  available  means?  Are  all 
working  together?  Is  there  conscious  and  organized  effort  to 
bring  about  the  best  possible  results?  Is  the  editorial  statement 
that  this  field  has  been  neglected  true?  Have  national  and  re- 
gional conferences  been  too  technical  and  specialized?  Are  dis- 
cussions too  "academic"  to  be  helpful? 

Other  considerations,  looking  toward  the  need  of  such  a  con- 
ference and  of  continuing  efforts,  are  important.  The  !N'orth 
Carolina  Municipal  Association,  banded  together,  partly  formally 
and  partly  with  informal  meetings,  has  done  substantial  work. 
Members  suggest  that  there  is  need  for  more  work  and  for  larger 
affiliation.  It  is  suggested  by  them  that  the  University  offer  more 
definite  programs  and  means  of  cooperating  with  towns  and  cities 
and  their  officials.  There  is  need  for  a  beginning  in  this  work. 
Others  look  to  iN'orth  Carolina  to  help.  The  League  of  Minne- 
sota Municipalities,  for  instance,  has  a  membership  of  183  towns. 
They  say,  "The  League  looks  to  the  leadership  of  N'orth  Carolina 
to  give  information  and  to  lend  experience."  This,  North  Caro- 
lina may  offer,  if  she  will.  The  l^ational  Municipal  League 
joined  heartily  in  the  cooperative  plan  for  a  regional  conference, 
and  Mr.  H.  W.  Dodds,  Executive  Secretary,  has  expressed  the 
belief  that  such  a  conference  might  be  a  noteworthy  milepost 
in  the  development  of  better  municipal  administration. 

The  widespread  interest  in  the  subject  of  the  conference  was 
further  evidence  of  its  timeliness.  The  press,  not  only  in  I^orth 
Carolina,  but  in  many  states,  reported  prominently  the  plans  of 
the  conference  and  commented  editorially.  From  the  front  page 
story  of  the  New  York  Times  to  the  small-town  Florida  news- 
paper; from  the  associated  press  items  in  the  eastern  dailies  to 
the  comments  of  the  middle  western  editor,  there  was  ample  evi- 
dence of  the  keen  interest  now  manifest  in  the  problems  of  local 


8 


Attainable  Standards  in  Municipal  Fbogbams 


. 


I 


administration.  The  editorials  in  the  Carolina  papers  were  of 
special  help  and  indicative  of  the  opportunity  which  the  Univer- 
sity is  called  upon  to  meet — an  opportunity  which  must  be  recog- 
nized at  once  as  too  large  to  meet,  except  by  gradual  steps  and 
with  the  cooperation  of  all  those  involved.  Perhaps  the  comment 
of  the  Greensboro  News  was  typical  of  the  possibilities  ahead: 

If  the  conferees  at  Chapel  Hill  can  get  our  people  in  the  habit  of 
taking  thought  about  their  governments,  so  that  the  work  started 
by  the  conference  can  be  kept  up;  if  it  can  inculcate  in  us  some  re- 
spect for  knowledge  and  training  in  government  ofBcials,  it  will  have 
done  a  wonderful  thing  for  the  towns  and  counties  of  the  state.  At 
any  rate,  the  hopes  of  all  the  people  are  necessarily  with  it.  Its 
success  means  much  to  all  of  us. 

There  was,  finally,  the  plan  of  the  University  Extension  Divi- 
sion, in  the  organization  of  its  Bureau  of  Municipal  Information 
and  Research,  to  offer  certain  services  to  the  municipalities  of 
the  state.  The  first  efforts  of  this  Bureau,  worked  out  through 
the  School  of  Public  Welfare,  were  the  plans  for  a  first  Regional 
Conference  on  Town  and  County  Administration.  The  emphasis 
upon  county  administration  was  limited  to  the  important  aspects 
of  correlation  with  towns;  to  the  continuation  of  certain  move- 
ments begun  years  ago  by  Dr.  Branson;  to  the  planning  for  a 
great  conference  next  year  when  the  N'orth  Carolina  Association 
of  County  Commissioners  meet  at  Chapel  Hill;  and  to  the 
emphasis  upon  all  local  administration,  such  as  was  given  by 
Hon.  E.  C.  Brooks,  Commissioner  Johnson,  Dr.  Rankin  and 
President  Poteat.  The  purpose  of  the  conference  was  stated 
"to  make  concrete,  definite  and  substantial  contributions  to 
present-day  critical  problems  in  the  development  of  American 
democracy  and  to  make  usable  to  the  people  the  important  facts 
of  local  government." 

This  report  does  not  purport  to  be  any  sort  of  complete  story 
of  the  problems  of  local  administration  and  their  solution.  In 
accordance  with  the  considerations  mentioned  above  it  is  a  be- 
ginning, and  with  the  emphasis  upon  the  social  aspects  of  our 
towns  and  cities,  and  their  county  affiliations.  It  can  include 
only  so  much  as  was  available  at  the  conference  and  certain  other 
items  of  interpretation.  Its  emphasis  is  upon  "attainable  stan- 
dards" and  it  should  be  followed  by  other  reports  of  other  confer- 
ences much  more  important  in  the  future.  The  report  is  offered 
in  the  same  spirit  in  which  Mayor  W.  S.  Roberson  welcomed  the 
delegates  to  Chapel  Hill.  "We  often  affirm,"  the  Mayor  said, 
"that  people  have  the  sort  of  government  they  want.     This  is 


n 


Univeesity  of  ITokth  Carolina  • 

full  of  truth  and  full  of  error.  For  how  can  the  people  all  the 
while  know  what  sort  of  government  they  want?  How  can  they 
attain  to  those  indefinite  and  unexpressed  ideals  without  the 
knowledge  and  experience  necessary?  That  all  the  people  may 
know  what  sort  of  government  they  want  and  how  greater  services 
may  be  rendered,  groups  of  experts  and  groups  of  practical  ex- 
perience gather  together.  May  they  not  help  to  direct?  May 
not  Chapel  Hill  welcome  them  in  this  spirit?"  In  the  same  in- 
trepretation  of  "welcome"  and  in  the  spirit  and  purposes  indicated 
in  the  address  of  President  Harry  Woodburn  Chase  which 
follows,  this  report  is  passed  on  to  all  who  may  find  it  usable. 


At  the  first  general  session  of  the  conference  E.  C.  Branson, 
Kenan  Professor  of  Rural  Social  Economics  in  the  University, 
presided  and  opened  the  sessions  with  a  brief  statement  or  two  ap- 
propriate to  the  purposes  of  the  conference. 

Said  he:  "Ten  years  ago  in  an  address  in  Raleigh,  President 
Alderman  of  the  University  of  Virginia  raised  the  question  of 
whether  or  not  democracies  could  ever  be  organized  for  etiiciency. 
His  answer  was.  Yes — if  public  intelligence  and  publio  concern 
about  public  matters  can  be  raised  to  the  level  of  competent,  re- 
sponsible citizenship.  A  fairly  accurate  barometer  of  competent 
democratic  citizenship,  in  my  opinion,  is  the  level  of  competency 
and  honesty  in  levying  taxes,  in  collecting  and  expending  public 
revenues  with  minimum  waste  and  maximum  efficiency,  in  a  pro- 
per system  of  public  account-keeping  and  reporting  to  the  tax- 
payer. The  hope  for  efficient  democracies  lies  largely  in  efficient 
public  finance,  and  in  the  growing  demand  for  efficiency  in  the 
business  end  of  government.  There  is  no  hope  for  efficient  public 
finance  until  the  business  affairs  of  government,  local,  state,  and 
national,  can  be  wisely  removed  from  partisan  politics  and  at  the 
same  time  kept  responsive  to  the  public  opinion  of  democratic 
constituencies.  !N"o  business  rises  above  the  level  of  its  bookkeep- 
ing, and  the  bookkeeping  of  democracies  is  everywhere  a  standing 
reproach  to  public  intelligence." 

The  first  Regional  Conference  in  N'orth  Carolina  on  Town  and 
County  Administration  was  largely  a  direct  outgrowth  of  the  State 
and  County  Conference  held  at  the  University  in  the  fall  of  1919. 

Mr.  Branson  presented  President  Chase,  whose  address  follows; 
Hon.  E.  C.  Brooks,  State  Superintendent  of  Public  Instruction, 
whose  address  is  printed  on  page  114;  and  Hon.  Arthur  N.  Pier- 
son  of  'New  Jersey,  whose  prepared  substitute  paper  is  printed  on 
page  64. 


!t    I 


•    I 


II 


PKESIBEISTT  HARRY  WOODBURN  CHASE  TO 

THE  COKFEREI^CE 

It  is  my  liappy  privil^e,  on  behalf  of  the  University,  to  bid 
this  conference  the  heartiest  sort  of  welcome  tonight.  I  feel  very 
deeply,  and  I  am  sure  you  will  agree  with  me,  that  in  one  very 
real  sense  any  welcome  to  you  from  us  here  is  superfluous.  Some 
one  has  said  that  every  man  nowadays  has  two  countries :  his  own 
and  France.  That  is  a  fine  saying.  But  I  like  to  think  that  it 
is  true,  that  it  is  even  more  true,  that  every  citizen  of  !N^orth 
Carolina  has  two  homes — ^his  own  and  the  University.  And  so 
tonight  it  is  just  as  home-staying  members  of  the  family,  the 
great  family  of  !N^orth  Carolina,  that  we  open  wide  the  doors 
and  bid  you  enter  in,  not  to  that  which  is  ours,  but  to  that  which 
is  yours.  It  was,  I  believe,  just  that  feeling,  that  the  University 
is  the  state's,  an  instrument  of  service  for  its  welfare,  that  led 
the  people  of  the  state  a  few  months  ago  so  generously  and 
adequately  to  strengthen  its  arms. 

We  are,  I  assure  you,  sensible  of  the  responsibilities  thus 
imposed  on  us ;  and  I  pledge  you,  as  T^epresentative  citizens  of  the 
state,  that,  so  far  as  vision  shall  be  with  us,  we  will  strive  to 
be  worthy  of  our  trust. 

It  seems  to  me  that  there  is  great  significance  in  a  gathering 
of  this  sort — a  gathering  of  people  who  are  intimately  and  respon- 
sibly concerned  with  vital  problems  of  conmiunity  administration 
— to  work  out  and  formulate  through  common  counsel  a  forward- 
looking  program  in  a  field  so  complex  and  puzzling  as  yours.  The 
final  test  of  the  success  of  popular  government  is  not  the  strength 
of  its  swords,  the  stretch  of  its  territories,  or  the  number  of  its 
fortunes.  Its  test  is  the  simple  and  yet  searching  one  of  the  happi- 
ness and  welfare  of  its  citizens.  Democracy  must  advance  the 
common  good  or  it  fails.  Problems  of  self-government,  like  all 
other  problems,  get  more  difficult  as  the  elements  that  one  must 
work  with  get  more  numerous  and  more  complex.  To  make 
popular  government  really  morh  is  a  more  difficult  task  in  the 
twentieth  century  than  a  hundred  years  ago,  just  because  twen- 
tieth century  life  and  twentieth  century  civilization  are  so  compli- 
cated, so  difficult  to  grasp  as  wholes.  And  it  seems  to  me  that  if 
self-government  really  is  to  maintain  itself  and  to  perfect  itself, 
it  will  be  because  responsible  men  everywhere,  just  as  you  are  do- 
ing here,  set  themselves    to  a  serious  study  of  its  problems,  to  a 


Univebsity  of  !N'okth  Caeolina 


11 


b 


search  for  facts  and  for  real  remedies  for  whatever  may  need 
correction.  And,  further,  popular  government  works  and  will 
work  in  state  and  nation  just  in  proportion  as  it  works  in  local 
communities  effective  and  wise. 

Local  self-government  is  the  foundation  on  which  the  whole 
structure  of  democracy  must  always  rest.  Local  problems  are 
state  and  national  problems  writ  small;  a  man  must  first  of  all 
be  a  good  citizen  of  his  home-town. 

It  is  with  this  sense  of  the  importance  of  your  mission  that  the 
University  bids  you  welcome  tonight.  What  you  are  about  here 
is,  in  the  best  sense  of  the  term,  University  work — the  search 
for  truth.  We  have  much  to  learn  from  you,  active  workers  in 
the  fields  you  will  discuss.  The  deliberations  of  the  "State  and 
County  Council"  here  two  years  ago  were  in  no  small  measure 
responsible  for  the  establishment  here  of  the  school  of  Public 
Welfare,  under  whose  auspices,  you,  in  a  very  real  sense  a  part 
of  that  council,  have  come  together  here.  We  ask  of  you  just 
this  question:  What  will  you  have  us  to  do?  To  the  extent 
of  our  resources  and  our  capacities,  all  that  we  have  is  yours. 


1 1    , 
» ■    , 


CHAPTER  I 


ATTAINABLE  STANDARDS  OF  ACTIVE  CITIZENSHIP 

In  the  newer  discussions  of  local  administration  there  is  an 
increasing  emphasis  being  placed  upon  active  citizenship,  along- 
side the  standard  technical  problems  of  function,  organization, 
and  local  areas.  Perhaps  this  is  the  basic  point  from  which  the 
goals  of  efficient  function  and  organization  must  be  reached. 
Certain  it  is  that  no  matter  what  the  form  of  local  government 
or  what  its  facilities  for  expression  may  be,  there  can  come 
complete  community  development  "only  if  the  government  will 
so  speak  to  the  people  that  they  gain  the  impression  of  a  thinking, 
feeling,  acting  entity,  continually  immersed  in  plans  for  the  wel- 
fare of  the  whole  community."  And  so  one  of  the  objectives  of 
the  Regional  Conference  was  a  clearer  interpretation  of  the  prob- 
lems of  citizenship,  of  the  need  for  study  and  active  participation 
in  local  government  and  for  the  renewal  of  the  ideals  of  American 
democracy  as  expressed  in  the  fundamental  relations  between 
community  and  government.  It  is,  therefore,  with  pleasure  that 
the  following  interpretations  of  the  conference,  some  of  which 
may  well  constitute  permanent  contributions  to  the  literature  of 
local  government,  are  presented. 

The  eager  response  which  President  Harding's  message  to  the 
conference  met  gave  evidence  of  the  timeliness  and  force  with 
which  he  presented  the  subject.    His  message  follows : 

"My  attention  has  been  called  to  the  Regional  Conference  on  Local 
Government,  which  you  are  about  to  hold  for  a  broad  consideration 
of  the  social,  industrial  and  technical  problems  of  local  government. 

"It  is  a  pleasure  to  record  my  hearty  endorsement  of  the  effort  you 
are  making,  and  to  emphasize  the  need  which  I  believe  exists  for 
an  earnest,  continuing  presentation  of  those  subjects  to  the  people 
throughout  the  country.  The  problems  are  manifold  and  difficult, 
accentuated  by  the  complexity  of  conditions  which  have  arisen  during 
and  following  the  war.  There  has  been  an  inevitable  tendency,  be- 
cause of  the  overwhelmingly  important  work  which  confronted  the 
National  Government,  to  rely  unduly  upon  it  for  performance  of  many 
functions  which  can  only  be  discharged  properly  by  local  administra- 
tive entities.    This,  together  with  the  further  fact  that  our  country's 


UinVEKSITY  OF  !N'0BTH  CaBOLINA 


13 


rapid  growth,  and  the  consequent  difficulty  of  adequately  planning 
local  governmental  machineries,  has  resulted  in  a  certain  inefficiency 
of  the  minor  administrative  organisms  which  greatly  needs  to  be 
corrected.  It  will  be  corrected  whenever  the  attention  of  the  people 
is  fully  aroused  and  the  national  genius  for  adminstration  is  effec- 
tively applied. 

I  have  no  doubt  that  such  conferences  as  the  one  you  are  about 
holding  will  be  of  much  value  in  accomplishing  these  ends,  and  there- 
fore I  want  you  to  know  that  you  have  my  best  wishes. 

Of  great  significance  is  the  interpretation  given  by  Hon.  ITewton 
D.  Baker  when  he  affirms  that  the  schedules  of  subjects  to  be  dis- 
cussed are  "particularly  wise,  as  it  seems  to  me,  in  identifying 
the  commercial  and  social  aspects  of  municipal  administration 
with  the  financial  considerations,  all  of  them  being  tied  together 
in  the  mind  of  any  really  constructive  municipal  executive."  And 
Hon.  Josephus  Daniels  strikes  a  sympathetic  Carolina  chord  when 
he  says: 

We  are  learning  in  these  days  that  government  does  not  all  revolve 
around  the  courthouse  and  the  jail,  but  that  it  touches  every  concern 
of  the  home,  the  health,  the  education  and  the  welfare  of  the  people. 
We  need  to  emphasize  and  re-emphasize  that  government  is  not  some- 
thing set  up  by  somebody  somewhere  that  imposes  regulations  and 
rules  upon  us,  but  that  government  is  ourselves.  It  can  be  no  better 
and  more  efficient  than  the  average  of  the  units  which  make  up  our 
population.  If  the  people  who  desire  only  the  common  weal  are  in- 
different, those  who  wish  to  work  selfish  ends  through  the  agencies  of 
government,  will  pervert  the  agencies  to  their  own  ends. 

Eternal  vigilance  by  all  the  people  is  the  price  to  be  paid  for  real 
democracy. 

Mr.  Hoover  sends  a  typical  interpretation  of  public  service : 

The  greatest  public  service  today  is  devotion  to  the  upbuilding  of 
our  community  institutions,  our  town  governments,  our  town  and 
country  improvements,  our  schools,  and  all  that  multitude  of  volun- 
teer institutions  in  promotion  of  education,  recreation,  and  commerce. 
The  war  created  a  great  lot  of  people  who  wish  to  lean  on  federal 
and  state  governments.  Our  country  was  built  by  pushers,  not  leaners. 
Progress  of  the  nation  is  simply  the  sum  total  of  local  progress.  We 
go  backwards  the  moment  we  destroy  the  initiative  of  our  people  by 
constant  extension  of  federal  authority. 


/ 


I 


II'  I  u 


14 


Attainable  Standards  in  Municipal  Pbogeams 


From  the  League  of  Minnesota  Municipalities : 
The  League  of  Minnesota  Municipalities  extends  its  greetings  to 
the  Conference  on  Small  Town  and  County  Adiminlstration,  which  is 
meeting  at  the  University  of  North  Carolina  September  19-20-21.  The 
Conference  is  a  new  and  important  one.  It  is  entering  upon  fields 
for  study  that  are  fertile  in  their  opportunity  for  usefulness — fields 
that  have  escaped  heretofore  the  continuing  and  concentrated  interest, 
not  because  they  are  less  important,  but  because  they  have  been 
hidden  from  the  general  view.  If  the  Conference  can  but  make  a 
mere  beginning  into  an  extensive  study  of  county  administration,  its 
success  is  fully  assured. 

The  League  of  Minnesota  Municipalities,  containing  183  cities  and 
villages,  is  also  interested  in  the  small  community.  Minnesota,  com- 
pared with  North  Carolina,  is  a  very  new  state.  Its  recorded  history 
scarcely  covers  the  span  of  a  lifetime.  In  1850,  when  the  territory 
of  Minnesota  contained  its  present  boundaries  and  in  addition  more 
than  half  the  territory  of  North  and  South  Dakota,  its  population 
numbered  6077.  In  1920,  it  numbered  2,387,124,  scattered  about  in 
692  cities,  villages  and  boroughs,  of  which  655  contain  less  than  5000 
inhabitants.  The  League's  problem,  therefore,  is  largely  the  problem 
of  the  small  town.  The  League  looks  to  the  leadership  of  North  Caro- 
lina to  give  information  and  to  lend  experience. 

We  trust  that  your  Conference  will  be  reported  in  detail,  that  it 
will  be  an  annual  affair  hereafter,  and  that  the  pioneer  work  of  North 
Carolina  will  attract  the  notice  of  its  sister  states  in  making  new 
steps  of  civic  progress. 

From  the  Greensboro  Daily  News: 

The  mayor  of  Greensboro  and  the  city  manager  are,  or  were  yester- 
day, at  Chapel  Hill,  we  are  informed.  We  hope  that  the  information 
is  correct,  for  we  believe  that  that  is  where  they  belonged.  The  first 
National  Regional  Conference  on  Town  and  County  Administration  is 
in  progress  there,  and  it  behooves  every  man  connected  with  munici- 
pal or  county  affairs  to  be  on  hand  if  possible. 

For  town  and  county  administration  have  suffered  infinitely  in 
this  state  as  the  profession  of  teaching  has  suffered  from  a  curious 
delusion  that  anybody  is  competent.  As  a  matter  of  fact,  no  business 
is  more  diflScult  to  administer  successfully,  no  business  has  greater 
need  of  the  experience  and  special  knowledge  of  specially  trained  men. 
The  business  of  this  conference,  according  to  the  program  is  "to  make 
concrete,  definite  and  substantial  contributions  to  present-day  criti- 
cal problems  in  the  development  of  American  democracy  and  to  make 


Univeesity  of  !N^obth  Caeolina  15 

usable  to  the  people  the  important  facts  of  local  government."     It  is 
an  ambitious  project,  but  surely  not  an  unattainable  goal. 

The  conference  has  a  number  of  speakers  listed  on  its  program  who 
are  able  to  give  to  the  visiting  delegates  much  concrete  information 
on  various  local  problems.  That,  in  itself,  will  make  the  meeting 
worth  while.  But  we  are  impressed  with  the  belief  that  it  may  ac- 
complish a  greater  work  if  it  is  only  able  to  give  an  impetus  to 
consideration  from  a  scientific  viewpoint  of  the  affairs  of  towns  and 
counties  in  North  Carolina.  We  have  had  entirely  too  much  hap- 
hazard government.  We  have  been  far  too  easy-going,  too  much  inclined 
to  agree  literally  with  the  Scriptural  pronouncement  that  sufficient  to 
the  day  is  the  evil  thereof,  and  consequently  too  little  inclined  to 
provide  against  the  evils  of  the  future. 

How  many  towns  in  North  Carolina  have  any  definite,  well-thought- 
out  plan  for  material,  let  alone  any  other,  development?  Greensboro 
has  a  city  plan,  indeed,  but  can  this  city  be  said  to  have  a  genuine 
policy?  Time  after  time  the  suggestions  in  the  city  plan  have  been 
blithely  ignored  by  the  city  government.  Indeed,  we  know  of  no  case 
where  the  expediency  of  the  moment  has  been  waived  in  favor  of  the 
development  of  the  future.  That  sort  of  thing  is  opportunism  of  the 
worst  variety.    It  is  not  carrying  out  any  policy,  not  even  a  bad  one. 

How  could  it  be  expected,  then,  that  the  affairs  of  our  cities  and 
towns  should  ever  be  in  anjrthing  but  a  chaotic  condition?  We  invite 
chaos.  We  play  for  it.  We  deliberately  make  it  inevitable,  and  then 
cus«  the  government. 

If  the  conferees  at  Chapel  Hill  can  get  our  people  in  the  habit  of 
taking  thought  about  their  governments,  so  that  the  work  started  by 
the  conference  can  be  kept  up,  if  it  can  inculcate  in  us  some  respect 
for  knowledge  and  training  in  government  officials,  it  will  have  done 
a  wonderful  thing  for  the  towns  and  counties  of  the  state.  At  any 
rate,  the  hopes  of  all  the  people  are  necessarily  with  it.  Its  success 
means  much  to  all  of  us. 

From  the  News  and  Observer: 

The  University,  the  National  Municipal  League,  the  North  Carolina 
Municipal  Association,  the  North  Carolina  Commercial  Secretaries  and 
the  North  Carolina  Association  of  County  Commissioners  will  partici- 
pate in  the  Town-County  Conference  to  be  held  at  Chapel  Hill,  Sep- 
tember, 19-21. 

Undoubtedly  every  community  in  the  state  which  pretends  to  have 
a  government  of  any  sort  can  get  valuable  information  by  having  a 
representative  at  this  conference.     In  the  multitude  of  counsel  there 


16 


Attainable  Standards  in  Municipal  Pkogeams 


is  wisdom.  The  last  word  has  not  been  spoken  on  any  subject,  and  from 
the  talks  of  the  experts  and  others,  community  developers  and  pro- 
moters will  acquire  much  that  will  be  helpful  and  stimulating. 

Example  is  a  wonderfully  inspiring  thing.  Local  authorities  who 
attend  the  coming  meeting  and  learn  there  about  the  aggressive  work 
that  is  being  done  in  other  communities  will  go  back  home  with  a  new 
zeal  for  achievement.  And  with  the  zeal  there  will  be  the  practical 
information  which  will  have  been  gained. 

The  conferences  of  various  kinds  which  are  being  held  at  the  Uni- 
versity are  having  a  gratifying  result.  They  are  knitting  the  various 
parts  of  the  state  closer  together  and  aiding  in  bringing  about  a  sjrm- 
metrical  and  harmonious  development.  The  Town-County  Conference 
next  month  should  have  a  large  attendance. 

From  the  Asheville  Citizen: 

If  there  is  any  keen  interest  left  in  the  preservation  of  local  self- 
government  it  should  show  itself  in  the  attendance  of  the  Conference 
on  Town  and  County  Administration  to  be  held  at  the  University  of 
North  Carolina.  In  his  letter  of  regret  that  he  cannot  be  present, 
Secretary  Hoover  remarks  that  the  war  left  us  with  an  increased  num- 
ber of  those  who  wish  to  lean  on  the  Federal  Government;  but  says 
Mr.  Hoover,  'Our  country  was  built  by  pushers,  not  leaners.' 

It  grows  increasingly  difficult  for  most  people  to  say  where  the  line 
is  which  separates  state  and  county  functions,  or  state  and  federal 
activities.  But  instead  of  debating  so  much  over  that  boundary  line, 
why  not  focus  some  energy  on  strengthening  the  local  units?  When 
these  units  are  more  robust  they  will  naturally  find  more  to  do  and 
not  some  way  to  avoid  doing  it. 

Reports  on  county  and  city  administration  reveal  an  amount  of 
ignorance  and  general  inefficiency  in  many  sections  that  make  it  re- 
markable that  local  governments  have  survived  at  all.  There  is  no 
better  way  to  begin  the  work  of  rejuvenation  than  by  the  conferences 
conducted  every  year  at  Chapel  Hill. 


'\ 


« 

r 


ATTAINABLE  STANDARDS  OF  INDITIDUAL 
PUBLIC  SERVICE 

Abstract  of  Address  by  President  Wm.   Louis  Poteat 

ITotice  first  the  terms  of  the  topic.  "Attainable  Standards" 
shows  an  admirable  caution,  ^o  refinement  of  ideals  without 
limitation  of  actual  conditions  is  permitted.  The  standards  must 
not  be  too  high;  they  must  be  within  reach.  Human  nature  is 
still  human  nature.  One  may  believe  in  its  perfectibility  while 
one  doubts  its  present  perfection.  Selfishness  is  still  here.  It  has 
been  too  long  the  survival  instinct  of  all  existence  to  be  very 
much  mitigated  as  yet.  On  the  other  hand,  I  decline  to  accept 
the  doctrine,  "Every  man  for  himself."  Undoubtedly  there  is 
now  as  a  result  of  our  recent  experience  a  new  sense  of  our  social 
solidarity.  We  are  seeing  as  never  before  that  the  welfare  of 
each  is  a  condition  of  the  safety  of  all.  Besides,  we  cannot  doubt 
what  Kuskin  insists  upon,  that  social  action  is  often  the  result 
of  the  play  of  the  personal  and  social  affections. 


"The  Public  Service" — what  is  comprehended  here?  A  syn- 
optical view  is  presented,  and  your  attention  is  called  to  the 
enormous  extension  of  the  functions  of  government  represented 
in  this  synopsi*  as  compared  with  the  early  nineteenth  century 
theory.  ^ 

1.  Protection  of  person  and  property. 

a.  Legislation. 

b.  Interpretation   and   application   of   law  to   particular 
cases. 

c.  Administration  of  law. 

2.  Provision  for  the  dependent. 

a.  Employment  and  pay  for  the  unemployed. 

b.  Maintenance  for  the  aged  and  infirm. 

c.  Education  and  opportunity  for  the  children. 

3.  Promotion  of  the  public  welfare. 

a.  Internal  improvements;  public  works. 

b.  Transportation  and  communication. 

c.  Public  sanitation;  quarantine. 
d.  Social  betterment. 

4.  Imposition  and  collection  of  taxes  to  meet  the  expenses 

of  this  varied  public  service. 


i 


'■> 


y 


18 


Attainable  Standards  in  Municipal  Programs 


The  topic  suggests  two  general  questions.  First,  what  may  be 
reasonably  expected  of  the  individual  citizen  in  private  life? 
Second,  what  may  be  reasonably  expected  of  the  individual  citizen 
in  public  life? 

The  individual  citizen  in  private  life  may  be  reasonably  expected 
to  support  by  influence  and  money  (taxes)  the  society  of  which  he 
is  a  member  and  whose  benefits  he  enjoys.  It  would  be  dishonor- 
able to  accept  the  advantages  of  ordered  society  and  to  decline 
its  obligations.  That  would  be  too  much  like  the  attitude  of  the 
United  States  Senate  to  the  Treaty  of  Versailles,  indefensible 
because  immoral. 

In  the  second  place,  the  private  citizen  may  be  reasonably 
expected  to  exercise  the  right  and  duty  of  the  suffrage  in  all  good 
conscience.  That  will  involve  information  about  men  and  meas- 
ures. There  is  great  need  to  break  the  political  machine,  to 
defeat  the  boss  by  multiplying  bosses. 

The  private  citizen  may  be  expected  to  maintain  the  *  law  of 
the  land.  If  he  does  not  like  the  law  of  the  land,  he  has  the 
privilege  of  moving  to  a  land  which  has  the  law  he  likes.  There 
is  not  a  little  of  uninformed  talk  about  "personal  liberty."  It 
would  seem  to  be  perfectly  obvious,  and  yet  it  needs  to  be 
repeated,  that  law  is  the  expression  of  the  intelligence  and  morality 
of  the  majority  of  the  community  for  the  guidance  and  control 
of  the  minority,  whether  the  community  unit  be  the  school  district, 
the  municipality,  the  county,  the  state,  or  the  nation.  All  law 
is  a  limitation  of  personal  liberty.  Any  type  of  society  is  possible 
only  on  condition  of  its  supremacy,  and  the  interest  of  the  group 
must  determine  the  extent  of  the  limitation  of  the  personal  free- 
dom of  its  members.  The  stage  of  progress  of  a  community 
may  be  measured  by  the  limitations  which  it  imposes  upon  its 
members  for  the  common  advantage. 

If  the  average  citizen  is  intelligent  and  social-minded,  the 
group  may  be  trusted  with  the  largest  degree  of  democracy;  if 
ignorant,  self-seeking,  or  debauched,  nothing  can  save  democracy 
from  disintegrating  into  anarchy.  But  good  men  not  rarely  dis- 
regard their  civic  obligations.  Indeed,  among  the  most  dangerous 
enemies  of  the  social  order  are  the  respectable,  the  moral,  and  the 
intelligent.  They  are  preoccupied.  They  say  it  doesn^t  pay.  In 
other  cases,  they  are  superior.  They  say  that  political  life  is  an 
offensive  scramble  in  which  one  gets  mud,  if  not  worse.  Their 
theory  is,  stay  out  and  avoid  trouble,  reminding  one  of  Lord 
Melbourne's  advice  to  Victoria,  "Try  to  do  no  good,  and  then 
you  will  get  into  no  scrapes." 


V 


^> 


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University  of  KTorth  Carolina 


19 


The  individual  citizen  in  public  life  ought  to  be  amenable  to 
the  reasonable  standard  of  character  and  efficiency.  He  must  be 
patriotic  and  reliable,  otherwise  he  is  not  to  be  trusted.  He  must 
have  the  particular  type  and  grade  of  capacity  which  his  official 
position  demands,  otherwise  he  is  incompetent.  I  am  afraid  our 
public  servants  suffer  in  comparison  with  those  of  other  countries 
— England,  for  example.  One  reason  is  that  so  often  irrelevant 
considerations  control  their  appointment  to  office.  You  are  famil- 
iar with  the  considerations  commonly  urged  in  support  of  any 
given  candidate:  "Availability;  fought  in  France;  large  gifts  to 
public  enterprises;  long  and  favorable  service  to  the  party;  sup- 
ported me  in  my  campaign;  out  of  a  job  (put  a  man  in  charge 
of  the  public  business  who  has  failed  in  his  own) ;  the  young 
lawyer  seeks  publicity.  I  have  heard  of  a  IN'orth  Carolina  man 
who  stood  for  the  Legislature  in  his  county  for  the  purpose,  as 
he  said  of  getting  "a  new  date  for  his  stories."  Another  reason 
for  the  relative  inferiority  of  our  public  officials  is  the  fact  that 
with  us,  politics  is  a  profession,  rather  than  a  service.  And 
then  fit  men  stand  aloof. 

The  results  in  the  administration  and  conduct  of  the  public 
business  are  disastrous.  In  the  first  place,  there  is  a  free  field 
for  the  parasite,  the  favorite,  and  the  demagogue.  Things  are 
delivered  over  too  often  to  the  ignorant,  to  the  cunning  and 
energy  of  the  closely  organized  enemies  of  society.  In  the  second 
place,  there  is  an  interminable  mass  of  legislation,  overlapping, 
local,  superfluous — in  general,  monumental  incompetence. 

Some  insist  that  we  need  to  strengthen  and  train  the  police  force 
against  the  multiplied  crime  which  now  afflicts  us.  Enlarge  the 
forces  of  suppression.  Call  on  the  K.  K.  K.  to  aid  constituted 
authority.  There  is  no  hope  in  this  direction.  The  K.  K.  K.  with 
its  fe-fau-fum,  mumbo-jumbo,  thirteenth  century  mummery  is 
an  insult  to  the  intelligence  of  the  time,  and  an  out-and-out  slap 
at  the  existing  apparatus  of  justice.  Our  only  hope  lies  in  educa- 
tion of  the  right  sort,  education  which  supplies  the  social  motive 
in  a  quickened  sense  of  social  obligation,  while  it  enhances  intel- 
lectual capacity  and  range  of  interests.  Ruskin  says:  "Let  us 
reform  our  schools  and  we  shall  find  little  reform  needed  in  our 
prisons."  I  have  read  of  an  old  English  schoolmaster  retired 
in  his  later  life  to  the  dignity  of  constable.  He  wondered  at  the 
respect  which  the  community  seemed  to  pay  to  his  constable's 
club.  He  forgot  that  these  men  and  women  once  as  boys  and 
girls  sat  on  the  school  benches  before  him. 


THE  UlNTIVERSITY  OF  NORTH  CAROLINA  SERIES  IN 
CITIZENSHIP  AND  COMMUNITY  GOVERNMENT 

1.  The  North  Carolina  Year  Books,  edited  by  E.  C.  Branson,  Kenan 
Professor  of  Rural  Social  Science. 

A  series  rich  in  content  and  methods  of  community  study  and 
control. 

a  North  Carolina  Wealth  and  Welfare,  1916. 

b.  County  Government  and  County  Affairs,  1918. 

c.  The  State  and  County  Council,  1919. 

d.  State  Reconstruction  Studies,  1920. 

e.  North  Carolina,  Industrial  and  Urhan,  1921. 

2.  Patriotism  and  the  Schools,  by  Edward  K.  Graham,  then  President 
of  the  University. 

An  address  before  the  State  Teachers'  Assembly.    12pp. 

3.  The  American  University  and  the  New  Nationalism,  by  the  late 
President  Edward  K.  Graham. 

Reprinted  by  the  Extension  Bureau  from  the  Johns  Hopkins  Uni- 
versity circular.    12pp. 

4.  Comparative  Government  and  National  Ideals,  by  W.  W.  Pierson, 
Professor  of  History  in  the  University  of  North  Carolina. 

A  syllabus  for  the  study  of  government.  54pp. 

5.  Reconstruction  and  Citizenship,  arranged  by  L.  R.  Wilson,  Kenan 
Professor  of  Library  Administration. 

An  after-the-war  series.    14pp. 

6.  American  Ideals,  by  Norman  Foerster,  Professor  of  English. 
A  syllabus  for  the  use  of  Extension  centers.  14pp. 

7.  Citizenship  for  Women,  by  D.  D.  Carroll,  Dean  of  the  School  of 
Commerce. 

A  manual  of  instruction  for  Women's  Clubs.    55pp. 

8.  The  American's  Creed  and  Our  National  Flag,  by  L.  A.  Williams, 
Professor  of  School  Administration. 

A  manual  for  Teachers,  in  the  After-war  series.    16pp. 

9.  Our  Heritage,  by  Edwin  Greenlaw,  Dean  of  the  Graduate  School, 
and  J.  H.  Hanford,  Professor  of  English. 

A  manual  of  American  Ideals;  for  use  of  Women's  Clubs.    50pp. 


^   I    % 


University  of  Noeth  Carolina 


21 


10.  Constructive  Ventures  in  Government,  by  Howard  W.  Odum,  Kenan 
Professor  of  Sociology  and  Director  of  the  School  of  Public  Welfare. 
A  manual  of  Discussion  and  Study  of  Woman's  newer  Part  in 

Government.    98pp. 

11.  Problems  in  Citizenship,  by  Mise  Nellie  Robeson,  Chief  of  the  Ex- 
tension Bureau  of  Public  Discussion. 

Based  on  No.  10  and  additional  material.    31pp. 

12.  Community  and  Government,  by  Howard  W.  Odum. 
A  special  edition  of  No.  10  for  use  in  Schools.    106pp. 

13.  Training  for  Citizenship,  by  J.  G.  DeR.  Hamilton,  Professor  of 
History  and  Government,  and  E.  W.  Knight,  Professor  of  Rural 
Education. 

Report  of  studies  of  War  Education,  published  by  the  War  De- 
partment.   30pp. 

14.  The  Making  of  Citizens,  by  J.  G.  DeR.  Hamilton  and  E.  W.  Knight. 
Now  in  Press. 

15.  Social  Service  and  Public  Welfare,  prepared  by  The  School  of  Pub- 
lic Welfare. 

A  manual  in  co-operation  with  the  Chairman  of  Social  Service  of 
the  State  Federation  of  Women's  Clubs.    14pp. 

16.  Attainable  Standards  in  Municipal  Programs  by  Howard  W. 
Odum.  Report  of  the  first  Regional  Conference  on  Town  and 
County  Administration.     137pp. 

17.  See  also  the  Bulletins  on  Community  Drama  and  other  com- 
munity studies  and  the  University  News  Letter,  which  goes  to 
20,000  homes  weekly  the  year  through. 


I. 


COURSES  FOR  MUNICIPAL  OFFICIALS 

The  Univereity  of  North  Carolina  is  prepared  to  give  special  training 
for  municipal  officials.  The  following  four  year  course,  prepared  by  the 
School  of  Commerce  will  be  given  with  the  cooperation  of  the  Depart- 
ments of  Engineering,  Rural  Social  Science,  Political  Science,  and 
the  School  of  Public  Welfare  in  the  University.  Other  special  courses 
may  be  elected  if  desired. 

Fbeshman 


V 


English  1 

History  1 

History  2 

Mathematics    1 

Modern  Language 

Mathematics  2 

Modern  Language 

Geology  5 

Geology  6 

Drawing    1 

Drawing   2 

Sophomore 

Drawing    3 

Economics   1 

Economics  2 

English  4 

English  3 

Modern    Language 

Psychology  1 

Modern  Language 

Physics  2 

Surveying  1 

Physics  1 

or 

Economics  15 

or 

Chemistry  2 

Chemistry   1 

or 

or 

Zoology  2 

Zoology  1 

JUNIOB 

Accounting  1 

Accounting  2 

Accounting    3 

Engineering 

Engineering 

Engineering 

Principles  1 

Principles   2 

Principles   3 

(Streets,    Highways, 

(Lights    and    Power) 

("Water  and  Sanitation) 

and  City  Planning) 

Government  2 

Principles    of    Statistics 

Government  1 

Social  Psychology 

Government    3 

Sociology    2 

Sociology   7 

(The  Small  Town) 

Senior 

Employment  Management 

Municipal  Government 

Municipal  Government 

Municipal  Accounting 

Sociology  10 

Puhlic  Finance 

Public  Finance 

(Municipal    Administra- 

Sociology 8 

Economics    16 

tion  and  Sanitation) 

(Community  Organi- 

(Theories  of   Reform) 

Business   Law 

zation) 

Business  Law 

Law   of  Municipal 

Business  Law 

Corporation    Finance 

Corporations 

Industrial  Management 

Business   Organization 

PubUe  Utilities 

«' 


CHAPTER  II 


ATTAIANABLE  STANDARDS  IN  AREAS,  FUNCTIONS 
ORGANIZATION  AND  CITIZENSHIP 

Howard  W.  Odum,  Director  of  the  School  of  Public  Welfare 

The  classification  given  below  may  serve  as  a  sort  of  table  of 
contents  for  this  volume,  although  necessarily  there  will  be  many 
items  in  the  standard  classification  of  duties  and  functions  not 
treated  in  this  report.  Wherever  the  subject  is  discussed,  the 
page  number  is  given  opposite  the  item  in  this  chart.  The  chart 
may  also  be  used,  if  desired,  as  a  measuring  scale  by  which  the 
status  or  progress  of  any  given  municipality  may  be  gauged.  It 
may  be  used  as  a  standard  indicating  the  scope  of  municipal 
social  services  in  a  well  developed  town  or  city.  The  extent  to 
which  all  services  listed  here  may  be  attempted  will  be  determined 
by  local  and  practical  considerations — the  size  of  the  munici- 
pality, the  cooperating  agencies,  private  and  public,  the  wish  of 
the  people,  the  financial  condition  of  the  town,  and  other  factors. 
This  chart,  together  with  President  Poteat's  "Attainable  Stand- 
ards in  Civic  Endeavor"  may  well  constitute  an  admirable  pre- 
liminary course  in  civics  for  towns.  Other  features  may  be 
added  by  those  who  find  opportunities,  or  who  believe  that  the  list 
is  incomplete.  Others  may  be  subtracted  where  necessary.  Still 
other  features,  listed  but  not  discussed  at  this  conference,  may 
well  be  set  aside  for  special  discussion  and  treatment  at  the  next 
annual  Town  and  County  Conference  in  August  1922.  From  this 
chart  should  arise,  not  only  consideration  of  the  immediate  pro- 
gram of  the  work  for  the  town  and  city,  but  the  beginnings  of  the 
next  program  of  municipal  officials.  The  items  listed  in  the  chart 
are  not  arranged  logically  according  to  function  and  organization, 
but  are  somewhat  intermingled  with  the  idea  of  scope  and  func- 
tions most  emphasized.  When  it  comes  to  private  and  voluntary 
services  to  the  municipality  or  services  to  the  rural  community, 
some  may  question  the  regularity  of  including  such  items  in  any 
technical  classifications  of  organization  and  function.  And  yet 
the  need  for  civic  cooperation  and  active  citizen  interest  would 
never  be  questioned  as  a  large  contributing  factor  in  the  develop- 
ment of  municipal  conmiunities  that  are  healthy,  wealthy  and 
wise.     !N'or  will  the  fact  be  questioned  that  the  modern  munici- 


I 


24 


Attainable  Standards  in  Municipal  Pboobams 


I    « 


pality  must  not  only  be  "city  building"  but  it  must  also  be 
"country-serving"  as  it  relates  to  its  rural  constituency.  This 
is  true  not  only  for  its  own  development  and  growth  but  for  the 
sake  of  the  surrounding  fields  from  which  come  its  resources 
and  its  new  population. 

How  does  each  municipality  measure  up  according  to  the 
standards  listed?  How  many  will  score  forty  or  fifty  of  the 
total  sixty  points  enumerated,  omitting  the  items  of  situation 
and  size?  Or  how  many  municipalities  are  planning  to  bring 
about  a  continuing  progressive  growth  of  town  and  services? 
How  does  each  municipality  compare  with  its  neighbor?  Or 
how  do  North  Carolina  cities  and  towns  compare  with  those  of 
other  states  ?  For  general  discussions  of  the  individual  conditions 
of  !N'orth  Carolina  towns  see  the  forth-coming  Bulletin  on  "ITorth 
Carolina,  Urban  and  Industrial,"  prepared  by  Dr.  E.  C.  Branson 
from  the  year's  work  of  the  I^orth  Carolina  Club. 


f'        \ 


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ATTAINABLE  STANDARDS  IN  MUNICIPAL  SOCIAL  SERVICES 

CLASSIFICATION                                                       DETAILS  PAGE 

1.  Large  enough  and  small  enough  to  support  a  good  govern- 

ment with  civic  interest  and  cooperation 114 

2.  Not  necessarily  the  census  size  city  of  2500  population  of 

which  there  are  55  in  North  Carolina,  nor  the  average 

for  this  country  of  between  2000  and  5000  population 94 

3.  The  small  town  of  which  there  are  more  than  400  in  North 

Carolina— the  very  bulwark  of  state  and  national  power ...  Ill 

4.  Increase  in  size  according  to  ability  to  maintain  standards ...  97 

LOCATION  AND  POSITION 122 

1.  Health,  accessibility,  economic  prosperity— conditions  upon 

which  to  base  municipal  program _ __ 

2.  Location  made  more  healthy  by  municipal  programs 

3.  Better  accessibility  through  development  of  roads  and  high- 

ways      

4.  Better  economic  bases  through  development  of  commerce 

and  rural  areas 

GENERAL  ADMINISTRATION.. 28 

1.  A  charter  adequate  to  the  social  and  economic  needs 37 

2.  A  plan  of  government  which  will  bring  out  civic  cooperation . .  17 

3.  Preferably  the  City-manager  plan 33 

4.  Commission  or  Mayor-council  plan 31 

5.  A  judicial  system,  adequate  for  social  justice 

6.  An  election  system,  good  in  plan,  good  in  tradition 

FINANCL^  ORGANIZATION  AND  METHODS 45 

1.  A  system  of  scientific  budget-making 73 

2.  A  system  of  accounting,  cost,  operation,  records 73 

3.  A  safe  plan  for  financing  public  improvements 61 

4.  A  soimd  method  of  assessing  and  collecting  revenues 114 

5.  A  system  of  auditing  satisfactory  to  local  and  state  authori- 

ties    66 

6.  Business  methodsin  government 45 

TOWN  PLANNING 94 

1.  A  fair  look-ahead  for  health,  happiness  and  prosperity 97 

2.  A  plan  for  recreational  facilities,  parks,  spaces,  playgrounds . .  Ill 

3.  A  plan  for  the  extension  of  streets,  transportation  facilities, 

terminals 94 

4.  A  plan  for  industrial  development  and  for  more  or  less  zoning  95 
6.    A  plan  for  the  development  of  new  residence  sections,  hous- 
ing for  workmen  and  for  increasing  population 96 

6.    A  plaii  for  civic  and  cultural  centers,  residence  and  industry . .  108 

SANITATION  AND  HOUSING _. 

1.  Insi)ection  of  congested  and  ne^ected  areas 

2.  Sanitary  inspection  of  housing  and  factories 

3.  Disposal  of  garbage  and  sewage 

4.  The  supervision  of  building  and  construction 

5.  Town  wide  plans  for  cleanHness  and  filth  prevention 

6.  Others 


^ 


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:il 


u 


26 


Attainable  Standards  in  Municipal  Pbogbamb 


PAQB 

PUBLIC  HEALTH 

1.  A  83rstein  of  medical  inspection  services 122 

2.  Adequate  hospital  services,  either  in  or  near  the  town 

3.  A  S3r8tem  of  food,  milk,  meat  inspection  services 

4.  A  83^tem  of  child  welfare  services 118 

5.  A  system  of  laboratory  services :  •  •  • : 

6.  A  statistical  service,  for  publicity  and  direction 

PUBLIC  WELFARE — 

1.  A  plan  for  correlating  all  relief  and  assistance 108 

2.  Systematic  outdoor  relief  on  a  constructive  basis 

3.  A  good  system  of  institutional  reUef 118 

4.  The  supervision   of  prisons,   reformatories  and  other  in- 

stitutions   

5.  Juvenile  court  work  in  accordance  with  the  best  standards . .  122 

6.  Constructive  and  preventive  work  and  publicity 

PUBLIC  SAFETY 

1.  A  good  organization  of  the  Police  system 

2.  The  regulation  and  control  of  traffic,  transportation 

3.  A  good  system  of  apprehending  and  correcting  the  offender ..     

4.  An  adequate  system  of  fire  protection 

5.  Substantial  plans  for  fire  prevention 

6.  Adequate  plans  for  protection  from  vice  and  harmful  in- 

fluences      

PUBLIC  WORKS  AND  UTILITIES. 

1 .  A  good  system  of  street  construction  and  maintenance 

2.  Construction  of  sewers;  disposal  plants,  city  buildings,  farms 

or  other  city  properties 94 

3.  The  maintenance  of  a  city  market  and  other  city  owned  pub- 

Uc  service  agencies 

4.  Ownership  or  supervision  of  water  works 41 

5.  Ownership  or  supervision  of  light  and  heat  plants .........  41 

6.  Ownership  or  supervision  of  transportation,  communication 

or  other  public  utilities 

PUBLIC  RECREATION 

1.  The  supervision  of  commercialized  recreation Ill 

2.  The  promotion  of  play  and  recreation  and  the  profitable  use 

of  leisure  time 

3.  A  system  of  parks,  playgrounds  and  open  spaces 112 

4.  A  system  of  organized  and  directed  play  and  recreation ....  112 

5.  A  plan  for  a  civic  and  social  center 

6.  Others 

PUBLIC  EDUCATION 

1.  Effective  organization  and  administration 114 

2.  Careful  selection,  equipment  and  supervision  of  teaching. . .  113 

3.  An  adequate  curriculum,  classification  and  grading  of  pupils .     

4.  Good  school  hygiene  in  groimds,  buildings  and  methods 122 

5.  The  school  serving  the  whole  community 

6.  A  civic  interest  back  of  the  school 


4 


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University  of  N'orth  Carolina 


VOLUNTARY  AND  CIVIC  SERVICES 

1.  Cooperation  between  officials  and  private  agencies  in  pub- 

lic service,  libraries,  weights  and  measures  and  other  ser- 
vices   

2.  A  community  council  or  clearing  house  for  all  voluntary 

agencies 

3.  A  live  chamber  of  commerce 

4.  A  good  atmosphere  in  which  the  other  needed  voluntary 

agencies  may  work ^ 

5.  Cooperation  with  the  churches  and  denominational  edu- 

cational institutions 

6.  Others 

SERVICES  TO  THE  RURAL  COMMUNITY. . 

1.  A  "coimtry-serving"  as  well  as  "city-building"  municipa- 

pality 

2.  The  promotion  of  economic  welfare  in  the  country 

3.  The  improvement  of  communication  and  transportation 

4.  The  promotion  of  better  organization  and  cooperation 

5.  The  improvement  of  social  and  school  conditions 

6.  An  all-county  chamber  of  conunerce 


2T 


PAGE 


108 


9d 

108 

IT 


97 


At  the  second  evening  and  general  meeting  Mr.  H.  W.  Deeds,  Sec- 
retary of  the  National  Municipal  League,  presided  and  emphasized 
the  importance  ef  the  general  social  services  of  local  gevemment. 
He  introduced  Dr.  W.  S.  Rankin,  State  Health  officer;  Mrs.  Clarence 
A.  Johnson,  Commissioner  of  Public  Welfare;  and  President  W.  L. 
Poteat,  whose  addresses  are  printed  in  this  bulletin. 


«'  \ 


CHAPTER  III 


FORM  OF  MUNICIPAL  GOVERNMENT 


PB0GBES8  TS  MUNICIPAL  GOVERlVMEirT 
IN  THE  UNITED  STATES 

H.  W.  DODDS,  Secretary  National  Municipal  League 

The  curse  of  our  municipal  government  in  the  past,  as  with 
our  state  government,  has  been  its  puzzling  complexity.  Early  in 
the  last  century  our  cities  followed  the  federal  plan  of  two 
chambered  councils  and  an  elected  executive.  At  this  point,  how- 
ever, they  diverted  from  the  model  for  fear  of  a  strong  mayor. 
They  made  the  mayor  weak  as  an  executive  giving  him  little 
control  over  his  subordinates,  many  of  whom  were  elected  inde- 
pendently. By  such  a  system  of  checks  and  balances  it  was 
supposed  that  the  various  departments  of  government  would 
be  set  over  against  each  other  in  a  condition  of  perfect  equili- 
brium. The  liberty  of  the  citizen  would  thus  be  protected  against 
autocratic  officials  who  would  otherwise  selfishly  gather  power 
to  themselves  to  the  disadvantage  of  the  people. 

This  complicated  system,  difficult  to  administer  at  best,  was 
further  darkened  by  the  adoption  of  the  spoils  system.  "To  the 
victor  belong  the  spoils"  sounded  like  a  good  sporting  proposition 
and  the  American  people  accepted  it  in  an  uncritical  spirit. 
IN'aturally  municipal  elections  followed  national  party  lines  since 
the  strength  of  the  party  rested  upon  its  local  units.  The  theory 
of  democracy  seemed  to  demand  that  all  public  offices  be  elective 
no  matter  how  small  or  obscure  they  were.  Thus  local  elections 
formed  the  battle  ground  for  contending  political  organizations 
and  it  was  to  be  expected  that  when  one  party  got  control  of  the 
elective  offices  they  would  not  stop  until  they  had  extended  their 
control  to  all  appointive  offices  and  employees  as  well. 

This  situation  was  indeed  a  dark  background  for  the  develop- 
ment of  effective  municipal  government  capable  of  fulfilling 
the  manifold  important  duties  now  performed  by  our  cities.  Of 
course  the  unwieldy  structure  was  not  so  costly  while  the  objects 
of  municipal  administration  remained  simple.     When  our  cities 

*The  session  on  Municipal  Government  was  presided  over  by  Professor  J.  G.  deR 
Hamilton,  Head  of  the  Department  of  History  and  Government  of  the  University. 


•V 


f' 


University  of  !N"orth  Carolina 


29 


spent  only  a  fraction  of  what  they  spend  today,  when  there  was 
no  need  of  a  sanitary  engineer  or  a  street  railway  expert,  when 
tax  assessments  were  easily  made  and  when  the  engineering 
problems  of  the  city  were  practically  nil,  a  confused,  purposeless, 
political  administration  could  be  endured;  but  when  the  affairs 
of  our  cities  came  to  involve  millions  of  dollars  in  wealth  and 
highly  technical  problems  of  management  and  engineering,  the 
older  form  of  legislative  and  administrative  organization  broke 
down  completely.  The  shame  of  our  cities  became  a  by-word 
and  something  had  to  be  done. 

The  National  Municipal  League  was  the  first  national  organi- 
zation in  the  field.  In  1898  it  drafted  a  model  municipal  charter 
which  reflected  the  best  thought  of  the  time.  The  principles 
outlined  in  that  document  pointed  the  way  along  which  we  have 
been  proceeding  ever  since.  This  charter  has,  of  course,  been 
kept  up-to-date  by  subsequent  modifications.  It  now  provides 
for  the  city  manager  form  of  government  and  has  been  followed 
in  hundreds  of  cities  and  towns  throughout  the  country. 

The  keynote  of  government  today  is  not  complexity  and  checks 
and  balances  but  simplicity  and  responsibility.  For  the  execution 
of  policy  we  require  a  closely  knit  organization  under  a  single 
head,  with  clear  lines  of  responsibilty  focussing  at  the  head. 
Instead  of  electing  eighteen  or  twenty  officials,  as  the  "New  Eng- 
land town  meeting  used  to  do,  we  are  learning  that  experienced 
administrators  and  technical  men  cannot  be  secured  by  popular 
election.  We  have  further  learned  that  when  a  long  list  of 
officials  are  elected  on  co-ordinate  terms  there  is  no  real  co-ordi- 
nation in  practice.  Each  pulls  and  hauls  in  his  own  direction 
and  there  is  no  supervising  plan  to  bring  order  out  of  chaos. 

So  we  have  provided  for  the  city  manager  plan,  the  city  man- 
ager chosen  not  by  popular  election  but  by  a  small  body  of 
elected  representatives  who  are  able  to  study  intensely  the  quali- 
fications and  experience  of  candidates  and  to  act  accordingly. 
The  city  manager  is  given  the  power  to  appoint  his  subordinates 
and  to  remove  them.  He  thus  becomes  completely  and  inescap- 
ably responsible  for  their  conduct  individually  as  well  as  for  the 
results  of  the  administration  as  a  whole. 

IN^ote  that  the  city  manager  is  chosen  as  an  executive  and  is 
not  a  political  choice.  This  means  that  broad  questions  of  policy 
have  not  entered  into  his  selection.  It  is  not  the  city  manager's 
job  to  decide  questions  of  policy.  That  is  the  council's  job.  It 
is  the  city  manager's  job  to  carry  out  the  policy  handed  down 
by  the  council. 


Attainable  Standards  in  Municipal  Programs 


!N"ote  that  the  city  manager  has  not  been  chosen  at  a  political 
election.  Therefore,  he  has  not  had  to  make  political  pledges 
or  to  kiss  a  baby  to  land  his  job.  The  .council  are  chosen  repre- 
sentatives of  the  people.  With  them  rests  the  determination 
of  policy.  The  people  as  a  rule  are  perfectly  able  and  willing 
to  choose  their  l^slative  agents  because  they  are  chosen  on  the 
basis  of  honesty  and  policy.  We  trust  them  with  the  law  making 
power.  For  the  execution  of  the  law  we  rely  upon  a  specially 
designated  agent. 

The  city  manager  form  of  government  is  simply  the  culmi- 
nation of  a  process  which  has  been  going  on  for  over  a  generation. 
Its  purpose  is  simplification  of  organization  and  the  removal 
of  the  spoils  system.  Most  of  our  cities  have  abolished  the  old 
two  chambered  council.  A  great  many  cities  have  adopted  the 
commission  government  plan  which  centralizes  in  five  commis- 
sioners all  legislative  and  executive  functions.  Most  of  our  large 
cities  have  adopted  the  so-called  strong  mayor.  Unlike  the  old 
fashioned  mayor  the  new  mayor  is  given  the  power  of  appoint- 
ment and  removal  of  his  associates.  He  is  thus  compelled  to 
accept  more  responsibility  for  city  administration  than  he  used 
to.  ^Nevertheless  the  mayor  is  yet  a  politically  elected  official 
who  is  bound  to  reward  by  political  office  those  who  helped  him 
to  be  elected.  The  same  criticism  applies  to  the  commission  form 
of  government  where  we  have  both  the  appropriating  and  spend- 
ing power  in  the  same  hands.  The  commissioners  are  elected 
for  political  purposes  without  respect  to  pledges,  experience  or 
attainments.  Thus  a  harness  maker  becomes  chief  of  police  or  a 
barber  commissioner  of  public  utilities.  This  is  no  reflection 
on  such  men  as  members  of  a  legislative  body  but  it  does  mean 
that  they  have  not  the  equipment  necessary  to  administer  the 
technical   details   of  a  great   department. 

The  most  hopeful  thing  about  political  life  today  is  the  deter- 
mination on  the  part  of  the  people  to  secure  a  simplified  govern- 
ment so  organized  that  responsibility  can  be  clearly  located,  and  in 
so  doing  to  remove  from  the  administration  the  political  spoilsman. 
We  are  beginning  to  accent  service  in  public-service.  And  ser- 
vice to  a  political  party  no  longer  suffices  to  make  an  acceptable 
public  servant. 


1 


I     ^ 


*    I    t 


i 


THE  COJIOaSSION  FORM  OF  GOYEBNMENT 

AND  OTHERS 

J. 

Mayor  T.  B.  Eldbidoe,  of  Raleigh 

Prior  to  the  municipal  conference  lately  held  at  the  University 
the  writer  accepted  a  place  on  the  program  for  discussion  of 
municipal  government  as  it  exists  and  functions  in  N^orth  Caro- 
lina; but  time  and  opportunity  were  not  found  for  discussion 
of  the  subject,  and  a  request  was  received  later  for  an  expression 
of  his  views  in  writing,  to  which  this  is  his  response. 

Being  mayor  of  a  city  operating  under  the  commission  form 
of  government,  it  was  expected  of  the  writer  that  his  opinions 
would  be  favorably  prejudiced  toward  the  type  of  city  govern- 
ment which  he  represents.  This  assumption,  however,  is  correct 
only  within  certain  limitations.  If  there  were  only  two  hard- 
and-fast  forms  of  municipal  government — aldermanic  and  com- 
mission— it  is  hardly  open  to  doubt  that  he  would  choose  the 
latter;  but  the  question  is  bigger  than  that. 

When  the  writer  came  into  office  it  was  his  impression  that 
the  mayor  was  an  official  with  real  executive  authority,  but 
his  mind  was  soon  relieved  of  that  delusion.  It  early  appeared 
that  the  office  was  little  more  than  head  of  a  municipal  depart- 
ment. The  situation  might  not  be  so  bad  if  the  limitations  on 
his  powers  were  understood  by  the  public;  but  there  has  hardly 
been  a  day  in  the  two  years  of  his  administration  that  he  has 
not  been  reminded  that  the  people  look  to  him  to  bring  things 
to  pass,  to  give  municipal  service,  and  to  correct  conditions 
that  give  rise  to  complaint.  He  is  painfully  conscious  that 
citizens  suspect  him  of  passing  the  buck  when  he  represents  that 
he  is  without  authority  or  control  over  the  police  or  fire  depart- 
ments; that  he  cannot  regulate  sewer  or  sanitary  service;  that 
street  cleaning,  market  regulation,  automobile  traffic,  and  abate- 
ment of  nuisances  are  as  far  from  his  sphere  of  influence  as  the 
east  is  from  the  west. 

Early  in  his  administration,  feeling  hampered  by  the  restric- 
tions on  the  mayor^s  powers,  the  writer  consulted  local  lawyers 
and  wrote  to  sources  of  municipal  information  to  obtain  a  sym- 
posium on  the  status  of  the  mayor  of  a  commission  government 
city.  The  replies  were  all  to  the  same  general  effect  that  outside 
of  his  department  (which  in  Raleigh  embraces  municipal  records 


\         I 


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32 


Attainable  Standards  in  Municipal  Programs 


Univeesity  of  ]N"orth  Carolina 


33 


•  and  accounting,  taxation  and  revenue)  he  was  only  a  ceremonial 
representative  of  the  city— a  figure-head,  so  to  speak.  One  of 
the  out-of-state  authorities  consulted,  it  is  true,  said  that  on 
occasions  of  insurrection  or  public  calamity  the  mayor  would 
be  in  supreme  authority.  But  nothing  has  been  found  in  the 
laws  of  North  Carolina  to  bear  out  this  statement.  The  general 
power  of  supervision  given  in  the  chartier,  the  lawyers  say, 
means  nothing  more  than  that  the  mayor  may  examine  the 
books  and  papers  of  all  departments  and  may  offer  advice  to 
the  other  commissioners.  Quoting  one  of  the  commissioners  of 
the  City  of  Kaleigh,  "it  means  nothing  at  all." 

It  is  clear,  therefore,  that  the  mayor  of  a  commission  govern- 
ment city  comes  far  short  of  being  a  real  executive  officer,  such 
authority  as  he  has  being  restricted  within  very  narrow  limita- 
tions. Commission  government  as  it  functions  in  Raleigh  may 
be  likened  to  an  industrial  plant  operated  imder  three  superin- 
tendents who  are  supreme  in  their  respective  departments  and 
responsible  only  to  the  stockholders  without  the  intervening 
authority  of  a  president,  or  to  a  bank  in  which  the  president,  the 
cashier,  and  the  teller  act  independently  of  one  another.  Imag- 
ine, if  you  please,  a  school  without  a  principal  or  a  school 
system  without  a  superintendent. 

In  the  opinion  of  the  writer,  government  without  executive 
authority  is  essentially  weak  and  lacking  in  efficiency;  a  govern- 
ment with  three  executives,  each  supreme  in  his  own  department, 
is  for  all  practical  purposes  a  government  without  an  executive 
head.  Three  commissioners,  each  with  a  sphere  of  authority 
in  which  another  cannot  interfere,  and  responsible  only  to  the 
people  in  elections  held  biennially  unless,  perchance,  the  right 
of  recall  is  exercised,  cannot  in  reason  be  expected  to  afford 
the  best  results  in  municipal  service. 

The  theory  underlying  commission  government  is  that  the 
system  will  call  to  the  public  service  commissioners  of  the  sev- 
eral departments  who  are  especially  fitted  for  their  respective 
duties.  It  IS  not  for  the  writer  to  pass  in  judgment  on  the  results 
usually  obtained,  but  it  is  common  observation  that  aptitude 
fw-  politics  goes  further  in  municipal  elections  than  fitness  for 
office  minus  the  other  qualification. 

l^aturally,  the  question  arises.  What  are  you  going  to  do 
about  it?  Candidly,  it  is  easier  to  point  out  the  weakness  of 
the  system  than  to  discover  a  remedy.  The  situation  is  beset 
with  difficulties  which  are  apparent  from  a  consideration  of  the 
basic  principle  on  which  the  commission  form  of  government  is 


V 


i 


constructed.  The  writer  has  given  a  great  deal  of  earnest  thought 
to  consideration  of  ways  by  which  the  hands  of  the  mayor  might 
be  strengthened  without  impairment  to  the  dignity  of  the  other 
commissionerships ;  and,  frankly,  he  does  not  see  how  it  can  be 
done.  Iti  is  plain,  therefore,  that  where  a  change  is  desired  a 
radical  departure  from  the  system  is  advisable.  Three  plans 
are  here  suggested : 

1.  Ketain  the  three  commissionerships  and  elect  a  mayor 
with  authority  to  direct  their  administrative  activities  and  hold 
them  respponsible  for  the  manner  in  which  their  duties  are 
discharged. 

2.  Abolish  all  the  commissionerships  and  put  a  city  manager 
in  control  of  all  municipal  departments,  with  appointive  officials 
answerable  to  him  and  subject  to  removal  for  failure  to  render 
the  service  the  public  has  a  right  to  expect. 

3.  Elect  a  mayor  with  full  powers  of  administration,  making 
the  heads  of  all  municipal  departments  directly  responsible  to 
him,  holding  their  offices  by  his  appointment  and  subject  to 
removal  by  him ;  with  a  city  council  or  board  of  aldermen  having 
powers  of  legislation,  tax  levying  and  budget  making;  and,  per- 
haps, with  authority  to  review  the  official  administration  of 
the  mayor. 


CITY  MANAGEB  GOVEKNMEITT  IN  DURHAM 

City  Manager  R.  W,  Rigsby 

The  invitation  to  talk  before  this  gathering  of  earnest  students 
and  seekers  after  information  carried  with  it  the  admonition 
to  be  brief.  The  word  "brief"  ordinarily  is  pleasing  to  the  city 
manager  and  in  the  case  carries  with  it  absolution  from  the 
necessity  of  making  a  speech.  I  shall  therefore  talk  briefly  of 
a  few  matters  within  the  scope  of  the  city  manager  field. 

To  summarize  without  making  a  few  general  remarks  might 
seem  abrupt  and  lack  the  proper  connection  with  the  purposes 
of  this  convention.  We  are  here  I  take  it  to  exchange  informa- 
tion along  the  line  of  governmental  betterment  and  efficiency. 
By  a  process  of  analysis  and  synthesis  we  may  be  enabled  to  gain 
a  more  effective  method  as  regards  the  operation  of  our  govern- 
ment in  the  town,  county  and  state  units.  Effective  government 
as  affecting  the  city  unit  has  occupied  most  of  my  time  but  I 
have  not  been  and  am  not  unmindful  of  the  necessity  of  extending 


< 


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34 


Attainable  Standards  in  Municipal  Peograms 


this  effectiveness  to  the  other  units.  We  will  succeed  as  we 
demonstrate  the  benefits  to  be  derived  from  effective  operation 
and  administration  of  city  units. 

The  city  manager,  if  he  is  not  a  pioneer,  is  a  scout  who  brings 
back  tidings  from  the  front  line  trench.  He  may  carry  some 
theories  out  to  his  activities  but  he  brings  back  facts.  He  realizes 
that  though  science  may  be  applied  to  the  perfection  of  govern- 
mental machinery  the  dealing  with  his  council  and  the  people 
is  an  art  and  always  will  be.  Though  he  may  have  thoroughly 
grasped  the  rules  that  apply  to  the  general  problems  in  hand  he 
must  be  able  to  adjust  them  to  meet  varying  conditions.  He 
must  not  be  so  obsessed  with  the  letter  of  the  rule  as  was  the 
young  recruit  who  upon  challenging  his  second  lieutenant  for 
the  second  time  was  sharply  asked  if  he  knew  the  rules.  He 
immediately  replied — "Of  course  I  know  the  rules — The  rules 
prescribe  that  one  shall  say  ^Who  goes  there?'  three  times  and 
then  shoot." 

The  program  intimates  that  we  are  to  talk  on  progress  in 
North  Carolina  cities.  For  me  to  confine  myself  to  this  state 
would  leave  out  the  best  part  of  my  experience  as  I  have  been 
here  only  about  two  months.  You  will  pardon  me  if  I  speak 
briefly  of  my  experience  in  Bristol,  Ya. 

Some  two  years  ago  I  came  to  Bristol,  Va.,  in  the  role  of 
City  Manager.  I  assumed  the  administrative  duties  of  this  city 
which  is  separated  from  a  twin  city  just  across  the  state  line  in 
Tennessee.  The  state  line  runs  along  the  center  line  of  Main 
Street  and  divides  the  city  in  nearly  equal  parts.  It  may  seem 
beside  the  point  to  give  prominence  to  a  state  line  but  in  this 
case  it  had  a  remarkable  effect.  The  opposition  to  the  city  man- 
ager form  of  government  was  not  at  all  sure  that  the  change 
represented  a  majority  of  opinion.  They  were  very  bitter  and 
determined  to  make  a  failure  of  the  whole  proposition.  What 
was  more  natural  than  to  cause  friction  between  the  two  cities 
on  all  points  which  cities  so  joined  together  are  bound  to  have 
in  comm.on. 

We  started  in  immediately  to  perfect  the  governmental  machin- 
ery. This  consisted  of  reorganization  of  departments,  depart- 
mental reports,  a  modern  municipal  accounting  system,  a  complete 
city  budget,  and  purchasing  division  where  all  city  purchasing 
was  handled.  These  things  seemed  unusual  and  uncalled  for  to 
the  people  who  did  not  understand  and  formed  the  basis  for  the 
politician  to  raise  the  cry  of  an  Utopian  procedure.  Particularly 
were  we  subjected  to  criticism  when  we  had  made  a  complete 


->-i 


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Univebsity  of  J^orth  Carolina 


85 


contour  map  of  the  city  preliminary  to  laying  out  a  compre- 
hensive city  plan.  We  finished  the  map  and  the  city  manager 
form  of  government  came  very  near  being  completed  at  the 
same  time.  If  the  laws  of  Virginia  would  have  permitted  a 
vote  on  this  plan  of  government  at  the  end  of  the  first  year  I 
doubt  seriously  if  it  would  have  held  its  own.  At  the  end  of  the 
second  year  the  whole  sentiment  had  changed  and  it  is  gratifying 
to  those  who  backed  this  form  of  government  to  know  it  is 
now  firmly  established  with  a  confident  and  enthusiastic  backing. 

And  now  turning  to  Durham  I  must  say  the  past  two  months 
have  brought  before  me  a  mass  of  information  and  many  problems. 

The  problems  include  perfecting  an  accounting  system,  putting 
in  a  modern  city  budget,  and  centralizing  purchasing.  We  are 
now  perfecting  the  governmental  machinery  and  working  out 
a  system  of  reports  and  classifying  the  duties  to  be  performed  by 
each  office.  We  feel  that  without  an  effective  organization  work- 
ing under  definite  rules  we  shall  not  be  able  to  handle  efficiently 
the  big  things  to  be  done  in  Durham. 

The  matter  of  organization  and  smooth  operation  are  not  all 
the  problems.  Others  consist  of  the  carrying  out  of  a  grade 
separation  plan,  extended  street  improvement,  a  comprehensive 
city  plan,  a  market  problem,  enlargement  of  the  cemetery,  exten- 
sive water  works  development  and  many  others. 

We  hope  our  efforts  in  Durham  may  add  greatly  to  the  prog- 
ress of  cities  in  iN'orth  Carolina  and  we  believe  they  will.  It  is 
my  wish  that  the  various  cities  set  up  some  standards  of  com- 
parison so  that  we  can  compare  notes  and  I  believe  we  should 
come  together  often  to  discuss  our  problems. 

This  convention  will  surely  give  a  real  impetus  to  the  cause 
of  good  government  in  this  state  and  I  hope  it  is  a  fore-runner 
of  many  more.  The  officials  who  have  in  hand  the  affairs  of 
government  should  meet  often  to  compare  experiences  and  prepare 
legislation  to  meet  their  various  needs  in  properly  handling  the 
business  for  which  they  are  responsible. 


THE  CITY  MAXAGEB  PLAN  Hf  HICKOBY 

City  Manager  R.  G.  Hknbt 

The  success  of  thd  City  Manager  Plan  in  Hickory  is  a  good 
example  of  how  this  plan  works  in  a  city  of  from  5000  to  10,000 
people.  The  City  of  Hickory  was  the  second  city  in  the  United 
States  to  have  this  plan,  and  although  this  plan  has  been  in 


I 


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36 


Attainable  Standards  in  Municipal  Pboobamb 


effect  eight  and  one-half  years  it  is  still  thouglit  very  well  of 
by  the  people.  One  of  the  present  aldermen  who  fought  the  plan 
when  it  was  voted  on  said  lately,  "We  could  never  go  back  to 
the  old  way."  Whether  the  City  Government  functions  is  square 
up  to  the  City  Manager  and  if  it  does  not  function  the  City 
Council  know  where  to  place  the  blame. 

When  the  present  City  Manager  took  over  his  position  he 
found  the  City  affairs  were  in  as  good  shape  as  any  well  regulated 
business.  All  of  the  bills  were  paid,  a  good  set  of  books  were 
kept  up  to  date  and  all  of  the  departments  were  functioning 
properly. 

During  the  Summer  of  1920  the  City  did  two  miles  of  main 
sewer  and  one  and  three-quarter  miles  of  sidewalks.  Bids  were 
asked  from  contractors  for  both  kinds  of  work  but  the  bids  were 
too  high.  The  City  went  ahead  and  did  their  own  work  and 
saved  $2100  on  the  sewers  and  forty  cents  per  square  yard  on 
the  sidewalks.  Owing  to  the  cost  of  materials  this  was  all  the 
work  that  was  done  during  the  summer  but  late  in  the  Fall 
employment  conditions  got  bad  and  on  I^ovember  1st  the  City 
started  work  on  their  $125,000  Municipal  Building.  The  best 
bid  we  could  get  from  a  contractor  was  $11£',000  which  only  left 
$7000  for  land  which  cost  $9300,  seating  for  the  Auditorium 
which  cost  $4100  and  the  furnishing  of  the  offices,  jail,  and 
Fire  Department.  In  other  words  we  would  have  been  in  the 
hole  before  we  started  so  we  decided  to  do  the  building  ourselves. 
This  building  is  just  finished  and  we  have  saved  $29,104  of  the 
taxpayers'  money  besides  giving  employment  to  citizens  who 
needed  work. 

By  January  1,  1921  employment  conditions  were  worse  than 
in  the  Fall  of  1920  and  as  property  owners  had  put  in  numerous 
petitions  for  street  paving  we  decided  to  do  40,000  square  yards 
of  paving.  By  starting  our  bond  ordinances  etc.,  at  this  time 
we  believe  we  were  the  first  City  in  ^orth  Carolina  to  open 
bids  for  paving  in  the  Spring.  The  contractors  were  short  of 
work  and  we  believed  we  would  get  a  good  price.  We  were  not 
disappointed  as  we  got  a  very  low  price.  After  we  got  started 
with  the  paving  the  demand  for  paving  was  so  great  that  we  con- 
tracted an  additional  30,000  yards  and  then  had  more  paving  pe- 
titioned than  we  could  do.  In  paving  we  only  paved  the  main  ar- 
teries, and  by  doing  this  there  is  no  part  of  the  city  that  our  fire 
trucks  can't  get  to  in  three  minutes. 


University  of  !N"orth  Carolina 


37 


We  also  did  all  of  our  own  water  and  sewer  extensions  that  was 
found  necessary  by  the  street  paving.  $2000  was  at  least  saved 
in  this  work. 

Hickory  has  a  "Model  Charter,"  a  Council  of  four  aldermen 
and  the  mayor,  all  of  them  elected  at  large.  Everyone  of  them 
are  business  men  and  not  politicians.  The  City  is  run  on 
business  lines  all  the  way  through  by  hiring  the  best  men  and 
not  the  cheapest.  On  the  construction  work  done  by  the  City 
in  the  past  one  and  one-half  years  the  taxpayers  have  been 
saved  $49,000  by  using  good  business  judgment  as  to  when  and 
how  to  do  the  work  that  the  City  had  to  have  done. 

The  City  Manager  is  also  in  position  to  carry  on  the  work 
similar  to  a  Chamber  of  Commerce  if  the  City  is  too  small  to 
support  a  Chamber  of  Commerce.  There  are  lots  of  things  that 
arise  in  every  community  but  they  have  no  one  to  place  at  the 
head  and  put  it  through. 

After  working  and  writing  for  eight  months  the  City  Manager 
was  successful  in  getting  the  mercantile  fire  insurance  rates 
reduced  in  Hickory  thus  saving  $4000  per  year  to  the  mercantile 
establishments  of  the  City.  The  residential  rate  was  already 
the  lowest  rate  possible. 

From  the  above  facts  one  will  see  that  the  City  Manager 
form  has  been  very  successful  in  Hickory.  Some  of  ^ese  things 
might  not  have  been  possible  in  a  larger  City  but  it  was  possible 
here.  Here  we  work  on  Ben  Franklin's  saying  "Taxes  wisely 
expended  can  not  hurt  any  people.  Only  waste  can  bring 
bankruptcy." 


PROGRESS  IN  60LDSB0R0  UNDER  CITY 
MANAGER  PLAN  OF  GOVERNMENT 

City  Manaqeb  W.  M.  Rich 

In  the  year  1916  several  far  seeing  business  men  in  the  City 
of  Goldsboro,  realizing  that  the  municipal  government  in  effect 
at  that  time  was  not  functioning  properly,  proceeded  to  set 
about  the  task  of  providing  the  city  with  a  new  charter  which 
would  provide  for  a  coordination  of  the  work  of  all  departments 
of  the  city,  thereby  giving  the  people  of  this  city  the  service  to 
which  they  were  entitled.  A  charter  commission  was  appointed, 
and  after  much  time  and  study  it  was  decided  to  prepare  a  city 
manager   amendment   to  the  present  charter.     This   course   was 


ill 


38 


Attainable  Standabds  in  Municipal  Pboobams 


considered  necessary  on  account  of  the  strong  opposition  which 
developed   against   the   commision-manager   plan. 

The  city  manager  amendment  was  passed  by  the  1917  Session 
of  the  General  Assembly  and  was  voted  on  by  the  citizens  of 
Goldsboro  at  the  regular  municipal  election  held  in  May,  1917. 
The  charter  amendment  carried  by  a  very  small  majority,  which 
indicated  that  the  movement  was  not  endorsed  sufficiently  to 
insure  its  popularity. 

The  greatest  error  made  in  the  adoption  of  the  charter  amend- 
ment was  the  retention  of  the  old  ward  system  of  elections, 
together  with  the  old  Board  of  Aldermen  and  the  sectional 
representation  thus  obtained.  With  a  large  unwieldy  board, 
consisting  of  members  representing  their  various  wards,  it  is 
hard  to  inject  the  spirit  of  the  manager  plan  into  them  and 
prevent  them  from  appointing  committees  to  investigate  every 
trivial  matter  that  comes  up.  The  charter  amendment  as  a 
whole  is  a  very  good  instrument;  but  as  I  said  before,  the  great- 
est handicap  is  the  election  of  aldermen  by  wards  and  the 
seemingly  difficult  task  of  implanting  in  the  various  members 
a  full  realization  and  conception  of  the  true  workings  of  the 
city  manager  plan  of  government. 

In  selecting  the  first  city  manager  for  Goldsboro,  no  effort 
was  spared  in  attempting  to  obtain  the  services  of  an  expert. 
Over  five  hundred  applications  were  received  by  the  committee 
appointed  to  make  the  selection.  From  the  applicants  for  the 
position,  Mr.  E.  A.  Beck,  manager  at  Edgeworth-Sewickly,  Pa., 
was  chosen.  Mr.  Beck  came  to  Goldsboro  during  the  summer 
of  1917  and  remained  until  the  fall  of  1918,  at  which  time  he 
resigned  to  go  into  the  army.  During  Mr.  Beck's  administration 
Goldsboro  came  to  the  sudden  realization  that  it  was  no  longer 
a  small  conservative  city,  but  was  rapidly  growing  into  a  pro- 
gressive and  prosperous  community.  This  rapid  growth  brought 
about  the  need  for  public  improvements  in  the  way  of  pavements, 
sewers  and  water  main  extensions.  This  much  needed  improve- 
ment work  was  begun  in  a  small  way  in  1916,  but  the  results 
obtained  that  year  were  an  added  impetus  to  the  extensive  pro- 
gram which  was  adopted  later. 

Dr.  I.  M.  Cashell  was  appointed  city  manager  to  succeed 
Mr.  Beck.  TJnde'r  Dr.  Cashelf s  administration  an  exitensive 
program  was  commenced,  in  which  approximately  $700,000  was 
expended  in  asphalt  pavements,  $200,000  in  sewers,  and  $100,000 
in  water  main  extensions.  This  work  was  commenced  in  1919 
and  completed  during  the  summer  of  1921.     The  City  of  Golds- 


/       t 


Univebsity  of  N'orth  Carolina 


39 


boro  now  has  over  ten  miles  of  asphalt,  bitulithic  and  brick 
pavements.  In  addition  to  this  the  new  sewers  and  water  mains 
have  made  it  possible  for  nearly  every  house  in  the  city  to  install 
bath  and  toilet  facilities. 

However,  during  this  period  of  progress  in  public  improve- 
ments, the  city  has  been  seriously  handicapped  in  general  opera- 
tion and  maintenance,  owing  to  the  action  of  the  1919  General 
Assembly  in  passing  the  Revaluation  Act  and  limiting  the  cities 
to  a  tax  for  general  fund  purposes  in  1920  of  only  10%  more 
than  was  levied  in  1919.  Goldsboro  was  particularly  unfortunate 
in  this  respect  because  the  1919  tax  levy  was  very  low  and,  as 
it  turned  out,  was  inadequate  for  the  year.  The  consequence  was 
that  funding  bonds  had  to  be  issued  to  carry  on  the  city's  business 
for  the  fiscal  year  ending  May  31,  1921.  At  the  1921  Session  of 
the  General  Assembly  the  Municipal  Finance  Act  was  revised 
in  order  to  give  the  cities  of  N'orth  Carolina  the  power  to  raise 
sufficient  money  by  taxation  to  give  the  people  service.  This 
act  was  later  found  to  be  invalid  and  the  City  of  Goldsboro,  as 
well  as  other  cities  in  the  state,  are  placed  in  the  same  position 
they  were  in  during  1920.  This  could  have  been  remedied  by 
calling  a  special  session  of  the  General  Assembly  in  August,  1921 ; 
but  for  some  reason  the  Governor  could  not  see  the  necessity  of 
this  and  refused  to  call  it  at  that  time,  thereby  making  it 
necessary  for  Groldsboro  as  well  as  other  cities  throughout  the 
state,  to  issue  more  funding  bonds  for  the  present  fiscal  year.  It 
is  a  poor  business  principle  for  any  city  to  have  to  issue  funding 
bonds  to  pay  for  current  expenses,  and  no  city  should  be  placed 
in  that  position  by  any  state  legislature.  Is  it  fair  then  that 
progress  be  halted  and  the  credit  of  the  entire  state  impaired  by 
the  action  of  those  we  elect  to  represent  us  at  Raleigh?  I  am 
sure  if  the  people  as  a  whole  were  more  conversant  with  the 
government  of  our  cities  we  would  not  be  so  terribly  handicapped. 

However,  in  spite  of  everything,  the  City  of  Goldsboro  has 
made  rapid  strides  since  the  manager  plan  was  adopted  in  1917. 
The  extensiveness  of  program  for  public  improvements  has 
already  been  shown.  While  handicapped  in  the  general  main- 
tenance and  operation  of  the  city  on  account  of  lack  of  funds, 
we  have  attempted  to  give  the  people  of  this  community  one 
hundred  cents  worth  of  service  for  each  dollar  invested  by  them. 
Realizing  the  importance  of  carrying  out  measures  providing  for 
the  public  health  and  safety  of  the  community,  we  have  tried 
to  keep  these  departments  intact,  even  to  the  extent  of  sacrificing 
work  in  other  departments.     After  experimenting  with  an  inef- 


I 

! 


40 


Attainable  Standards  in  Municipal  Fbogbams 


Univebsity  OF  N'orth  Carolina 


41 


fioient  and  inadequate  health  department,  we  finally  decided  to 
go  in  with  the  county  on  a  combined  city  and  county  health 
department.  This  combination  is  giving  entire  satisfaction  and 
is  producing  wonderful  results.  Under  this  scheme,  in  addition 
to  the  health  officer  and  sanitary  inspector  who  do  work  both  in 
the  city  and  county,  we  have  a  special  sanitary  officer  for  duty 
in  the  city  alone.  The  food,  dairy  and  sanitation  inspection 
work  is  giving  entire  satisfaction  and  we  are  obtaining  results. 
The  mosquito  control  work,  which  comes  under  this  department, 
has  given  excellent  results  during  the  two  years  it  has  been 
tried  out. 

Our  fire  department  has  been  equipped  with  a  new  1000  gallon 
American  LaFrance  pumper  and  the  number  of  paid  men 
increased,  which  gives  the  city  a  very  efficient  department.  The 
efficiency  of  the  police  department  has  been  increased  by  the 
addition  of  a  motorcycle  policeman,  which  is  a  great  help  in 
enforcing  the  traffic  regulations. 

A  department  of  engineering  has  been  authorized  and  a  city 
engineer  employed.  This  department  will  be  organized  to  the 
fullest  extent  as  soon  as  the  funds  are  available.  The  street 
department  has  been  reorganized  and  is  doing  good  work  in  spite 
of  the  fact  that  very  little  money  is  available  for  this  work.  The 
street  cleaning  department  has  also  been  revamped  and  is  now 
producing  excellent  results.  Authority  has  been  granted  for  the 
purchase  of  a  steam  roller  and  a  motor-driven  flusher  and  sprink- 
ler, the  money  having  been  provided  by  bond  issue.  These  will 
be  purchased  as  soon  as  the  funds  for  operation  are  available. 
Ford  cars  have  also  been  provided  for  the  use  of  the  street  super- 
intendent and  the  water  superintendent,  thereby  enabling  them  to 
give  better  and  more  efficient  service. 

As  to  the  general  administration,  a  modern  system  of  budget- 
making  has  been  adopted  and  the  budget  appropriations  are 
strictly  adhered  to.  A  new  system  of  distribution  of  expendi- 
tures has  been  installed  which  will  provide  a  more  comprehensive 
report  on  the  year's  activities. 

To  make  a  success  of  any  city  government  the  people  must 
take  an  interest  in  it  and  cooperate  to  the  fullest  extent  possible. 
In  order  to  bring  the  government  to  the  people,  it  was  decided 
last  winter  to  issue  a  bulletin  to  be  distributed  gratis  throughout 
the  city.  The  object  of  the  bulletin  was  to  keep  the  citizens 
informed  as  to  the  workings  of  the  city  government  and  to  foster 
the  spirit  of  cooperation.     Several  numbers  of  this  bulletin  were 


*         I 


-r.-^k-*^ 


*  \ 


t  \ 


«  4 


issued,  but  at  the  beginning  of  this  fiscal  year  it  was  found  neces- 
sary to  abandon  the  scheme  on  account  of  the  lack  of  funds.  How- 
ever, in  spite  of  all  handicaps,  the  City  of  Goldsboro  has  made 
wonderful  advancements  since  the  manager  plan  was  adopted, 
and  even  though  those  opposed  to  the  plan  try  hard  at  times  to 
disrupt  the  present  organization,  the  people  are  beginning  more 
and  more  to  see  the  advantage  of  the  system.  Once  the  confidence 
of  the  people  is  established,  the  old  time  politicians  will  find 
that  their  efforts  are  in  vain,  and  they  will  be  forced  to  abandon 
all  plans  for  changing  back  to  the  old  time  political  regime. 


/      \ 


ELIZABETH  CITY  AND  THE  OUTLOOK 

J.  B.  Ferebee,  City  Manager 

Having  just  assumed  the  managership  of  our  city,  it  is  natural 
that  my  knowledge  of  the  vast  amount  of  things  needed  is  limited. 
I  will  say,  however,  that  the  problem  of  sanitation,  which  has 
given  some  trouble  with  respect  to  a  number  of  surface  toilets, 
is  about  to  be  remedied  by  having  sewer  connection  for  all  places, 
and  it  is  my  hope  that  eventually  the  city  will  own  its  sewer 
system,  which  will  make  compulsory  sewerage  much  easier  to 
handle. 

Our  paved  streets  have  been  allowed  to  depreciate  by  reason 
of  the  constant  digging  by  the  different  utilities  companies  and 
not  putting  them  back  in  shape.  I  shall  certainly  try  to  remedy 
this  and  advise  all  sister  cities  to  carefully  guard  against  promis- 
cuous tearing  up  of  paved  streets. 

Our  crowded  schools  are  about  to  be  enlarged  so  that  we  may 
be  able  to  take  care  of  all  the  pupils  for  years  to  come,  and  a 
bond  issue  of  about  $400,000  is  to  be  floated  for  that  purpose. 

A  well  equipped  fire  department,  an  excellent  police  force  and 
a  competent  clerical  organization  and  fine  coordination  all  around 
make  the  prospects  for  Elizabeth  City's  .present  form  of  govern- 
ment highly  promising. 

THE  CITY  MANAGER  PLAN  IN 
WESTEEVILLE,  OHIO 

R.  W.  Obebaugh,  City  Manager 

Westebville,  Ohio.  Population  3000.  Commission  Manager 
Charter  effective  January,  1916.  R.  W.  Orebaugh,  the  second 
manager,  was  appointed  September,  1917;  present  salary  $2700. 


X 


I 


42 


Attainable  Standabds  in  Municipal  Pbogbams 


The  City  Manager's  office  during  1920  passed  through  a  busy 
year  via  street  improvements  and  repairs,  new  water  works  im- 
provements, sewer  and  water  extensions  and  renewing,  extending 
and  enlarging  the  electric  light  and  power-distributing  lines. 

By  the  way  of  street  repairs.  There  were  250  separate  and 
distinct  patches  made  throughout  our  12  miles  of  brick  streets. 
These  patches  averaged  approximately  5.6  square  yards  each  and 
cost  approximately  $5.55  per  patch.  The  results  of  this  repair 
work  were  more  than  gratifying  to  the  general  public,  and  the  cost 
of  same  was  paid  from  the  Village's  share  of  the  Automobile- 
license  fund. 

By  the  way  of  Water  Works  Improvement.  The  first  big  step 
towards  carrying  out  the  new  water-works  program  was  completed, 
namely,  constructing  a  20  foot  diameter  reinforced  concrete  well, 
31  feet  in  depth,  laying  about  one  mile  of  6  inch  C.  I.  force  main 
and  erecting  a  200,000  gallon  steel  water  tank  and  tower.  This 
class  of  waterworks  improvements  was  paid  for  from  a  bond  issue, 
authorized  by  the  voters  in  I^ovember,  1919. 

The  policy  of  the  present  administration  has  been  to  make  as 
many  improvements  to  our  utilities  as  possible  from  the  earnings 
of  the  same.  This  proposition  did  not  look  very  encouraging  back 
in  1916  when  the  City  Manager  Administration  took  office,  as 
they  inherited  several  thousand  dollars  indebtedness  in  the  water 
and  light  departments  alone,  which  had  to  be  cleaned  up  before 
much,  if  any,  new  work  or  policies  could  be  inaugurated.  How- 
ever, the  close  of  the  year  of  1920 — or  after  £.Ye  years  of  opera- 
tion— shows  that  we  have  made  and  paid  for,  from  the  earnings 
of  our  water  and  light  plants,  approximately  $^5,000  worth  of 
improvements,  enlargements  and  repairs,  and  have  operated 
strictly  within  the  income  of  these  utilities  as  well  as  every  other 
department. 

Although  the  population  of  Westerville  has  only  increased  by 
several  hundreds  during  the  past  ^Ye  years,  we  have  (by  rendering 
good  service)  more  than  doubled  the  number  of  light  and  power 
consumers,  all  of  which  has  necessitated  considerable  expense, 
(which  has  been  taken  care  of  by  the  departments  income)  to 
provide  for  this  growth.  We  also  claim  that  our  rate  of  charge 
for  light  and  power  is  cheaper  to  the  consumer  than  the  average 
municipality  which  operates  this  utility  or  pays  direct  to  a  pri- 
vate corporation. 

Sinking  Fund.  As  far  back  as  1912  the  amount  received 
per  year  from  taxation  for  general  sinking  fund  purposes  was  ap- 
proximately $7000,  from  which  the  yearly  interest  charges  on 


^ 

\ 


«  4 


/  \ 


Univeesity  op  I^oeth  Caeolina 


43 


general  bonded  debts  of  $4700  had  to  be  paid.  The  tax  duplicate 
has  grown  steadily  since  then,  and  the  bonded  indebtedness  moder- 
ately, so  that  for  the  year  1920  (without  increasing  the  rate)  we 
received  approximately  $10,000  from  which  a  yearly  interest 
charge  on  general  bonded  debt  of  approximately  $6500  had  to  be 
paid.  Thus,  in  order  not  to  increase  but  rather  decrease  our  tax 
rate,  the  growth  of  our  sinking  fund  has  been  somewhat  handi- 
capped; however,  the  sinking  fund  to  date  has  about  $35,000  to 
its  credit,  which  is  practically  all  invested  in  Westerville  Munici- 
pal Bonds.  The  present  administration  has  increased  the  fund 
from  $26,000  in  1916  to  $35,000  in  1920,  without  increasing  the 
tax  rate.  The  following  is  a  comparative  statement  of  the  tax  rate 
per  $1000  of  valuation  from  1915  to  1920  inclusive. 

1915    1916    1917    1918    1919    19tO 

ueneral  Health,  Safety  and  Service  Funds 13.15  $2.86  $2.65  $2.31  $2.26  $1.05 

General  Sinking  Fund 2.80    3.46    3.60    3.06    3.57    3.85 

Total  Corporation  Rate $5.95  $6.32  $6.25  $5.37  $5.83  $4.90 

The  bonded  debt  of  the  village  is  as  follows : 

General  (Street,  Sewer,  Water  and  Light)  Bonds $178,301.00 

Special  Assessment  Street  Construction  Bonds 43,878.00 

Grand  Total  Bonded  Indebtedness $222,179  00 

On  Jan.  1,  1916,  the  present  form  of  government  inherited 
among  other  things,  $140,000  general  bonds  and  $37,690  Special 
Assessment  Street  Construction  bonds,  or  a  total  of  $117,690. 
Therefore  it  is  plain  to  be  seen  why  the  greatest  portion  of  our 
corporation  tax  rate  must  be  applied  to  create  a  sinking  fund,  and 
pay  interest  and  amortize  the  Tillage  bonded  debt. 

I  am  heartily  in  favor  of  the  municipality  owned  water,  light, 
gas,  sewage  and  other  utilities,  provided  they  are  properly  man- 
aged, and  proper  management  of  these  utilities  provides  a  source 
of  revenue  from  which  the  municipality  may  make  a  great  many 
improvements  and  betterments  they  otherwise  would  have  to  be 
deprived  of  or  acquire  through  a  prohibitive  tax  rate.  Some  of 
the  advantages  are  cheaper  street  lights,  cheaper  light  and  power 
to  all  public  buildings,  cheaper  and  better  fire  protection,  tax- 
payers or  shareholders  in  the  Corporation  Utilities  can  draw  divi- 
dends via  lower  rates  of  charge  which  should  prevail  for  the 
product  of  the  municipally  owned  public  utility.  Any  municipal- 
ity should  be  able  to  employ  an  expert  manager,  and  pay  at  least 
three-fourths  of  his  salary  and  aJl  the  salaries  of  his  assistants 


^ 

if 


I- 


44 


Attainable  Standards  in  Municipal  Peogeams 


from  the  earnings  of  their  utilities,  besides  having  the  benefit  of 
this  executive's  time  and  experience  for  other  departments  of 
the  Corporation. 

For  the  year  1921  we  are  planning  to  expend  over  and  above 
fixed  charges  about  $10,000  on  new  water  and  light  improvement, 
all  of  which  we  are  going  to  pay  for  from  the  earnings  of  these 
utilities. 

One  of  the  fixed  charges  of  our  water  and  light  department  for 
the  year  1921,  under  general  administration,  amounts  to  $5200 
divided  as  follows: 

Three  fourths  of  City  Manager's  salary $2025.00 

Assistant  to  City  Manager  or  Electrician    ....  1620.00 

Clerk  Hire 720.00 

Miscellaneous  expense 835.00 

Total $5200.00 

Westerville  is  one  municipality  that  could  not  employ  a  City 
Manager  and  keep  within  a  fair  tax  rate  without  a  paying  water 
and  light  utility. 

I  believe  the  people  here  are  satisfied  with  the  new  form  of 
government  and  are  banning  to  realize  that  they  are  getting 
more  and  better  service  for  their  money  than  under  the  old  plan, 
and  I  think  a  good  City  Manager  can  make  the  city  government 
worth  the  price  we  have  been  accustomed  to  paying  and  also  earn  a 
fair  salary  for  himself. 


Mr.  P.  C.  Painter,  City  Manager  of  Greensboro  was  present  and 
made  one  of  the  most  helpful  and  interesting  talks  of  the  Confer- 
•ence.     !N'o  formal  paper,  however,  was  prepared  for  this  Bulletin. 


CHAPTER  IV 


PROBLEMS  IN  MUNICIPAL  FINANCES 


THE  WOBK  OF  THE  1921  SPECIAL  SESSIOIT 

The  special  session  of  the  ITorth  Carolina  General  Assembly 
held  in  December  of  1921  made  no  important  changes  in  the  North 
Carolina  Municipal  Finance  Act.  The  only  important  aspect 
seems  to  be  the  exception  of  Madison  County  from  the  operation 
of  the  act.  It  will  be  well  for  anyone  who  is  specially  interested 
to  order  copies  from  the  office  of  the  Secretary  of  State.  The  dis- 
cussions which  follow,  however,  are  based  on  the  Act  as  it  now 
stands  in  all  of  its  fundamentals  and  will  therefore  give  the 
current  interpretations  desired. 

A  city-planning  bill  was  introduced  but  was  finally  amended 
so  as  to  include  only  Buncombe  and  Hanover  counties.  Both  Wil- 
mington and  Asheville  have  undertaken  plans  for  city-planning. 
A  later  bill  extended  this  privilege  also  to  Wake  County,  and 
Mayor  Eldridge  and  others  of  Raleigh  are  very  much  interested 
in  the  working  out  of  certain  comprehensive  plans.  This  bill  and 
others  may  be  had  also  from  the  Secretary  of  State;  the  summa- 
ries may  be  found  at  the  end  of  this  report. 

An  important  act  was  that  which  requires  state  supervision  of 
municipal  loan  and  bond  issues  which  passed  with  few  amend- 
ments. This  bill  is  also  appended  at  the  end  of  this  report  and 
is  of  considerable  importance  to  those  who  are  working  out  pro- 
gressive municipal  programs.  Many  bills  relating  to  local  munici- 
palities were  passed,  but  no  others  that  have  to  do  with  state-wide 
policies  or  principles.  A  careful  study  of  the  present  legislation, 
together  wdth  the  critical  analyses  herewith  given,  will  enable  the 
Conference  to  prepare  further  revisions  or  new  acts  such  as  may 
be  necessary  next  year. 

DEAN  CABBOLL'S  INTBODUCTION  TO  THE  SUBJECT 

Dean  D.  D.  Carroll  of  the  University  School  of  Commerce 
presided  at  the  meetings  devoted  primarily  to  finances  and  opened 
the  discussion  with  the  timely  keynote  of  "cooperative  finance." 


^1 


46  Attainable  Standabds  in  Municipal  Pbograms 

There  is  unity  of  interest  and  agony  here,  centering  around 
two  outstanding  problems: 

First,  failure  on  the  part  of  citizens  to  recognize  that  municipal 
finance  is  just  another  form  of  cooperative  expenditure,  and  co- 
operative expenditure  in  the  most  vital  and  intimate  phase  of 
every  day  life.  The  saving  to  the  individual  effected  by  joining 
with  his  neighbors  in  providing  such  safeguards  as  fire  and  police 
protection  over  individual  provision  for  needs  is  obvious.  The 
same  bargain  appears  in  cooperative  provision  for  schools,  good, 
clean  highways,  sanitary  agencies,  etc.  But  the  average  citizen 
fails  to  recognize  such  saving,  and  the  correction  of  his  attitude 
offers  the  greatest  problem  connected  with  this  subject. 

Second,  failure  on  the  part  of  municipal  officials  to  recognize 
the  importance  of  taking  the  utmost  care  in  administering  such  co- 
operative enterprises  with  the  same  efficiency  as  private  enterprises. 
Means  to  this  end  may  be  found  in  the  employment  of  the  munici- 
pal budget,  definite  and  effective  application  of  funds,  adequate 
and  unerring  accounting,  and  frequent  and  popular  statements 
of  stewardship  in  such  a  clear  manner  that  the  wayfaring  man  can 
not  fail  to  recognize  value  received. 

THE  irOBTH  CABOLDTA  ITUiriCIPAL 
FDTANCE  ACT 

A,  C.  MolNTOSH,  Professor  of  Law,   University  of  North  Carolina 

The  power  of  a  municipal  corporation  to  incur  debts,  levy  taxes, 
and  appropriate  money  depends  upon  authority  derived  from  the 
legislature.  This  authority  was  formerly  contained  in  special 
charters,  or  in  the  general  law,  where  the  special  charters  made  no 
provision  therefor;  but  since  the  amendment  to  the  Constitution 
requiring  municipal  corporations  to  be  created  under  general  laws 
and  prohibiting  special  legislation  with  reference  to  such  corpora- 
tions, this  has  been  regulated  by  a  general  statute. 

The  finances  of  a  municipal  corporation  are  applied  to  the  pay- 
ment of  necessary  expenses,  which  may  be  divided  into  the  ordi- 
nary current  expenses  of  the  government  and  the  extraordinary 
ejqpenses,  such  as  constructing  and  maintaining  waterworks,  elec- 
tric light  plants,  etc.,  and  to  expenses  other  than  necessary.  The 
Constitution,  Art.  7,  s.  7,  (C.  S.  2691)  provides  that  no  municipal 
corporation  shall  contract  any  debt,  pledge  its  faith,  or  loan  its 
credit,  nor  shall  any  tax  be  levied  or  collected  by  any  officer  of 
the  same,  except  for  the  necessary  expenses  thereof,  unless  by 
a  vote  of  a  majority  of  the  qualified  voters  therein.  The  munici- 
pal government  may,  therefore,  contract  debts  for  necessary  ex- 


.>- 


TJniveesity  of  N'oeth  Caeolina 


47 


penses  without  asking  the  consent  of  the  people,  either  through 
the  l^islature  or  by  popular  vote.  What  is  included  under  the 
head  of  necessary  expense  is  a  question  of  law  to  be  decided  by 
the  courts,  but  whether  or  not  such  expense  will  be  incurred  is 
within  the  discretion  of  the  municipal  government,  subject  to  the 
control  of  the  courts  only  in  case  of  abuse  of  such  discretion. 

Since  all  municipal  power  is  derived  from  the  legislature,  re- 
strictions may  be  imposed  upon  the  exercise  of  x)ower  even  for 
necessary  expense,  so  as  to  require  the  popular  vote  or  to  limit 
the  amount  involved.  In  such  case,  however,  it  is  not  necessary 
that  the  popular  vote  should  be  a  majority  of  the  registered  vote, 
but  only  a  majority  of  those  voting. 

For  other  than  necessary  expense  and  for  the  purpose  of  levy- 
ing a  tax,  Constitution,  Art.  2,  s.  14,  provides  that  the  legislative 
authority  is  to  be  given  by  an  act  which  has  passed  its  three  sepa- 
rate readings  on  three  several  days  in  each  house,  and  upon  the 
second  and  third  readings  the  ayes  and  noes  must  be  entered  upon 
the  journal.  In  addition,  for  other  than  necessary  expense,  there 
must  be  a  majority  of  the  qualified  voters  in  favor  of  the  proposi- 
tion at  an  election  held  for  that  purpose. 

By  C.  S.  2693,  which  is  the  act  of  1889,  c.  486,  the  amount  of 
the  indebtedness  for  any  city  or  town,  for  a  special  purpose, 
cannot  exceed  ten  per  cent  of  the  assessed  valuation  of  property 
therein  for  taxation.  This  was  held,  however,  not  to  apply  to 
debts  for  necessary  expenses.     Whrn^ton  v.   Greensboro,  146-356. 

As  to  municipal  taxation,  unless  otherwise  provided  in  the 
charter,  the  levy  could  not  exceed  fifty  cents  on  the  hundred 
dollars,  and  one  dollar  and  fifty  cents  on  the  poll.  (C.  S.  2677.) 
This  tax  is  required  to  be  uniform  and  ad  valorem  on  all  property 
within  the  corporation.  (C.  S.  2678.)  Since  the  constitutional 
equation  between  the  property  and  poll  tax  did  not  apply  to 
municipal  corporations,  to  observe  this  equation,  when  the  levy 
was  increased  by  special  authority,  frequently  made  the  poll  tax 
burdensome.  To  prevent  this,  C.  S.  2679,  provides  that  the  poll 
tax  shall  not  exceed  $2,  but  this  does  not  apply  to  all  cases  nor 
to  all  towns.  Under  the  recent  amendment  to  the  Constitution, 
the  poll  tax  in  cities  and  towns  may  not  exceed  $1.00.  The  levy 
of  50  cents  on  the  $100  was  held  to  apply  only  to  ordinary  run- 
ning expenses  of  the  municipal  government.  Underwood  v.  Ashe- 
loro,  152-641. 

Instead  of  waiting  to  raise  money  by  the  ordinary  means  of 
taxation  before  it  could  be  used,  the  municipal  corporation  may 
wish  to  borrow  or  to  incur  a  debt  to  be  paid  in  the  future.     This 


\ 


~>v> 


4S 


Attainable  Standards  in  Municipal  Pboobams 


could  be  done  by  issuing  notes  for  temporary  short  time  loans^ 
or  by  issuing  bonds  having  a  longer  time  to  run. 

By  the  act  of  1915,  c.  66,  cities  and  towns  were  authorized  to 
issue  bonds  and  levy  assessments  for  local  improvements,  in  which 
a  part  of  the  expense  is  to  be  paid  by  the  municipality  and  a 
part  by  the  property  owners  specially  benefited.  This  is  now  the 
law  as  contained  in  C.  S.  2703-2728,  modified  in  some  respects 
by  subsequent  statutes  as  to  procedure  in  issuing  bonds. 

For  the  purpose  of  regulating  the  issuing  of  bonds  by  munici- 
pal corporations  generally,  the  act  of  1915,  c.  131,  wtas  enacted, 
which  was  intended  to  be  in  addition  to,  and  not  to  supersede, 
other  statutes  authorizing  the  issue  of  municipal  bonds.  This 
was  repealed,  and  the  next  act,  known  as  the  Municipal  Finance 
Act  of  1917,  was  adopted.  (Acts  of  1917,  c.  138.)  The  preamble 
to  this  act  states  that  it  is  intended  to  carry  out  the  purpose  of 
the  amendment  to  the  Constitution,  providing  for  general  laws 
for  cities  and  towns,  "to  restrict  their  power  of  taxation,  assess- 
ment, borrowing  money,  contracting  debts,  and  loaning  their  credit, 
so  as  to  prevent  abuses  in  assessment  and  in  contracting  debts  by 
such  municipal  corporations."  This  statute  was  reenacted,  with 
some  modifications,  in  the  acts  of  1919,  c.  178,  which  is  the  form 
of  the  statute  contained  in  the  Consolidated  Statutes,  beginning 
with  section  2918.  Certain  amendments  to  this  statute  were  made 
at  special  session  of  1920,  c.  3. 

The  whole  municipal  finance  statute  was  re-written  and  re- 
enacted  in  the  acts  of  1921,  c.  8,  with  various  changes,  containing 
somewhat  more  liberal  powers  than  in  the  original  act.  When  this 
statute  came  before  the  Supreme  Court,  in  the  recent  case  of 
Allen  V.  City  of  Raleigh,  decided  in  June  1921,  it  was  held  to  be 
void  for  the  reason  that  it  had  not  been  enacted  in  accordance  with 
the  provisions  of  the  Const.,  Art.  2,  s.  14.  This  was  held  especially 
with  reference  to  the  power  to  contract  debts,  issue  bonds  and 
levy  a  tax,  which  are  the  most  important  parts  of  the  statute. 
Whether  other  provisions  regulating  the  procedure  in  passing  a 
bond  ordinance,  holding  elections,  and  the  sale  of  bonds,  are  also 
invalid,  does  not  clearly  appear;  but  since  these  changes  only 
reduce,  instead  of  adding  to,  the  requirements  of  the  original 
statute,  except  perhaps  in  one  respect  to  be  noticed  later,  a  com- 
pliance with  the  original  statute  would  seem  to  be  sufficient.  The 
amending  statute  of  1920,  c.  3",  is  expressly  repealed,  except  as  to 
three  sections,  two  of  which  are  minor  modifications  of  the  origi- 
nal act,  and  one  referring  only  to  counties.  From  the  intimation 
of  the  Supreme  Court  it  would  seem  that  the  present  Municipal 


i 


A» 


"^    ..'     ^ 


^' 


LIBRARY 


49 


Finance  Act  is  that  contained  in  the  Consolidated  Statutes,  until 
the  legislature  meets  again  and  clears  up  the  confusion  which 
now  exists. 

The  Municipal  Finance  Act  applies  to  all  municipal  corpora- 
tions. The  main  features  of  it  are,  fixing  the  beginning  of  the 
fiscal  year;  preparing  a  budget  and  an  appropriation  ordinance; 
providing  for  temporary  loans;  providing  for  permanent  loans  or 
investments"  by  passing  a  bond  ordinance ;  the  issuing  and  sale  of 
bonds ;  limitation  of  indebtedness ;  and  fixing  the  limit  of  taxation. 

Fiscal  Year.  The  fiscal  year  shall  begin  on  the  first  day  of 
June  or  the  first  day  of  September,  as  the  governing  body  may 
determine. 

Budget.  Within  one  month  before  or  after  the  banning  of 
the  fiscal  year  the  governing  body  shall  prepare  a  budget  based 
upon  estimates  furnished  by  the  different  departments  of  the  gov- 
ernment. The  budget  shall  show  an  itemized  estimate  of  the 
appropriations  necessary  to  be  made  for  the  year,  including  cur- 
rent expenses,  permanent  improvements,  payment  of  principal  and 
interest  on  debts  before  incurred,  any  deficit  for  the  previous 
year,  and  a  comparative  statement  of  the  two  preceding  years ;  an 
itemized  estimate  of  the  revenues  to  be  derived  from  taxes  and 
from  all  other  sources  for  the  year ;  and  a  statement  of  the  finan- 
cial condition  of  the  municipality.  A  copy  of  the  budget  ^all  be 
filed  with  the  clerk  for  public  inspection,  and  a  public  hearing 
had  thereon  after  due  notica 

Bond  ordinance.  Within  one  month  after  the  beginning  of  the 
fiscal  year  the  governing  body  shall  pass  the  annual  appropria- 
tion ordinance,  based  upon  the  budget.  Appropriations  may  be 
made  before  the  adoption  of  this  ordinance,  to  be  included  in 
those  made  by  the  ordinance;  and  the  ordinance  may  be  amended 
so  as  to  transfer  revenue  to  some  other  purpose  or  to  apply  avail- 
able revenue.  Any  unexpended  balances  at  the  end  of  the  fiscal 
year  shall  revert  to  the  original  fund  for  future  appropriation. 
Kevenues  provided  by  statute  to  be  applied  to  a  special  purpose 
must  be  included  in  the  budget,  but  cannot  be  applied  to  any 
other  purpose. 

Temporary  loans.  A  municipality  may  borrow  money  to  meet 
the  current  appropriations,  in  anticipation  of  the  collection  of  the 
taxes  and  other  revenues  for  the  year,  such  loans  to  be  paid  not 
later  than  the  10th  day  of  October,  in  the  next  fiscal  year.  Money 
may  also  be  borrowed  to  pay  the  principal  and  interest  of  any 
judgment  rendered  against  the  municipality;  and  also  to  antici- 


kl 


50 


Attainable  Standards  in  Municipal  Peograms 


pate  the  sale  of  bonds  authorized  to  he  issued.  Such  loans  are 
to  he  evidenced  by  notes  to  he  executed  in  the  manner,  and  to 
mature  at  the  times,  specified  in  the  statute. 

Permanent  financing,  A  municipality  may  issue  honds  for  any 
purpose  for  which  it  may  raise  or  appropriate  money,  except  for 
current  expenses.  It  may  issue  honds  to  fund  or  refund  a  debt 
payable  at  the  time  of  the  ordinance  or  to  become  payable  within 
a  year. 

Before  issuing  the  bonds,  the  governing  body  shall  pass  a  bond 
ordinance  showing  the  purpose  for  which  they  are  to  be  issued; 
the  aggregate  amount;  that  a  tax  is  to  be  levied  to  pay  the  prin- 
cipal and  interest ;  that  a  statement  of  the  municipal  indebtedness 
has  been  filed  for  public  inspection ;  the  average  assessed  value  of 
property  subject  to  taxation  for  the  three  preceding  years ;  the  net 
debt  outstanding.  The  bond  ordinance  shall  take  effect  as  specified 
therein,  either  at  once,  or  upon  a  popular  vote;  or  within  thirty 
days  unless  a  popular  vote  is  asked  for. 

If  the  bonds  to  be  issued  are  for  funding  or  refunding  a  debt, 
or  for  local  improvements  in  which  special  assessments  are  to  be 
levied,  no  popular  vote  shall  be  required.  If  the  bonds  are  for 
other  than  necessary  expenses,  the  popular  vote  is  required;  or 
the  governing  body  may,  in  other  cases,  have  the  popular  vote 
taken ;  or  it  may  be  provided  that  the  ordinance  shall  take  effect 
thirty  days  after  publication,  unless  a  petition  is  filed  asking  for 
the  popular  vote.  The  statute  provides  for  the  manner  of  filing 
the  petition  and  of  holding  the  bond  election.  See  the  case  of 
Comrs.  V.  M alone,  179-694.) 

In  the  bond  ordinances  or  by  subsequent  resolution,  the  govern- 
ing body  shall  determine  the  periods  for  which  the  bonds  are 
to  run.  This  will  depend  upon  the  purpose  for  which  the  bonds 
are  to  be  issued,  and  the  maximum  period  for  different  purposes, 
running  from  five  to  forty  years,  is  specified  in  the  statute.  Unre- 
lated purposes  shall  not  be  included  in  the  same  ordinance. 

Before  the  final  adoption  of  the  bond  ordinance,  there  shall 
te  filed  by  the  proper  offi'cer  a  sworn  statement  showing  the  gross 
dehi  of  the  municipality,  including  outstanding  debts  not  evidenced 
by  bonds ;  outstanding  bonds,  and  the  debt  to  be  incurred  under  the 
bond  ordinance.  It  shall  also  show  the  net  debt,  to  be  ascertained 
by  deducting  from  the  gross  debt  certain  available  funds,  as 
unissued  bonds,  sinking  funds,  and  unpaid  assessments.  It  shall 
also  show  the  assessed  valuation  of  property  for  the  preceding 
three  years,  and  the  percentage  which  the  net  debt  bears  to  such 


i> 


u^^ 


i-r 


-3 


.^ 


TJniveesity  of  N'oeth  Carolina 


51 


valuation.  The  ordinance  shall  not  be  passed  unless  it  appears 
that  the  net  debt  does  not  exceed  ten  per  cent  of  the  assessed  valua- 
tion, or  twelve  and  one-half  per  cent  where  the  assessed  valuation 
is  not  more  than  four  millions,  unless  the  bonds  are  for  funding 
or  refunding.  The  act  of  1921  made  the  general  limit  eight  per 
cent.  This  statement  shall  remain  on  file  with  clerk  for  public 
inspection.  This  limitation  is  discussed  in  the  case  of  Crayton  v. 
Charlotte,  175—17. 

A  bond  ordinance  shall  be  published  once  a  week  for  four  weeks 
(act  of  1921  has  it  two  weeks)  after  its  final  passage,  with  a 
notice  that  any  action  or  proceeding  to  question  its  validity  must 
be  commenced  within  thirty  days  after  its  first  publication.  After 
the  expiration  of  such  period  no  action  or  proceeding  to  question 
the  validity  of  the  ordinance  can  be  maintained. 

After  the  bond  ordinance  takes  effect,  bonds  may  be  issued  at 
any  time  within  three  years,  and  the  governing  body  may  deter- 
mine by  resolution  the  amount  to  be  issued,  the  rate  of  interest  not 
exceeding  six  per  cent,  payable  semi-annually,  the  time  and  place 
of  payment,  the  bonds  to  mature  in  installments  or  series.  The 
statute  provides  for  the  formal  method  of  issuing  the  bonds,  with 
or  without  coupons,  and  also  for  their  registration. 

The  municipal  bonds  shall  be  sold  at  not  less  than  par,  upon 
sealed  bids  or  at  public  auction  after  due  advertisement,  unless 
the  sale  is  made  to  a  sinking  fund,  or  within  thirty  days  after 
failure  to  receive  a  legally  acceptable  bid.  The  notice  of  sale 
shall  be  published  in  a  newspaper  published  within  the  munici- 
pality, or  in  one  published  in  the  county  and  circulating  within 
the  municipality,  or  if  no  such  paper,  then  notice  shall  be  posted 
at  the  door  of  the  building  in  which  the  governing  body  meets 
and  at  three  other  public  places  within  the  municipality.  The 
notice  shall  be  published  at  least  once,  containing  a  description 
of  the  bonds,  the  time  and  place  of  sale,  the  time  for  bids  to  be 
received  not  less  than  ten  days  after  the  first  publication. 

In  addition  to  the  above  manner  of  publication,  the  act  of  1921 
provides  that  a  notice  shall  be  published  at  least  ten  days  before 
the  time  for  receiving  bids,  in  a  "financial  paper  or  trade  journal 
published  within  the  state,  which  publishes  from  time  to  time 
notices  of  the  sale  of  municipal  bonds."  Whether  this  provision 
falls  within  the  act  in  which  it  is  contained  is  not  clear,  but  it 
would  be  safer  to  comply  with  it;  and  the  Supreme  Court  has 
held  in  Komegay  v.  Goldshoro,  180-440,  that  the  News  and  Oh- 
server  was  a  paper  coming  within  the  class  designated  as  a  "finan- 
cial paper  or  trade  journal"  in  which  the  notice  of  sale  could 


52 


Attainable  Standards  in  Municipal  Pkogbams 


be  published;  but  in  Comrs.  v.  Pruden,  180-496,  it  was  held 
that  publication  in  a  local  paper  which  did  not  usually  publish 
notices  of  the  sale  of  municipal  bonds  was  insufficient. 

Bonds  reciting  that  they  are  issued  in  pursuance  of  this  act 
shall  be  incontestable  unless  an  action  or  proceeding  is  begun 
before  the  delivery  of  the  bonds. 

While  the  act  provides  that  all  municipal  bonds  shall  be  sold 
at  not  less  than  par,  there  is  an  exception  that  bonds  sold  out  of 
a  sinking  fund  may  be  sold  for  less  than  par.  In  Kornegay  v. 
Goldsboro,  180-440,  it  was  held  that  the  legislature  could  authorize 
a  particular  municipality  to  sell  its  bonds  below  par,  without 
violating  the  constitutional  provision  against  special  legislation. 

There  are  certain  general  restrictions  imposed.  ITo  munici- 
pality shall  make  an  appropriation  of  money  except  as  provided 
in  this  act;  nor  borrow  money  nor  issue  bonds  or  notes  except 
as  herein  provided;  nor  make  any  expenditure  of  money  unless 
the  money  shall  have  been  appropriated  as  provided  in  this  act, 
unless  it  shall  be  in  payment  of  a  judgment  or  in  payment  of  the 
principal  or  interest  of  a  bond  or  note;  nor  enter  into  any 
contract  involving  the  expenditure  of  money  unless  a  sufficient 
appropriation  shall  have  been  made  therefor,  except  for  a  continu- 
ing contract  extending  beyond  the  fiscal  year. 

Taxation.  The  municipality  is  authorized  to  levy  and  collect 
a  tax  ad  valorem  upon  all  taxable  property,  sufficient  to  pay  the 
principal  and  interest  and  to  provide  a  sinking  fund  for  the  pay- 
ment of  all  bonds  and  notes  issued  for  its  indebtedness ;  and  such 
power  to  tax  shall  not  be  subject  to  any  limitation  prescribed  by 
law  upon  the  amount  or  rate  of  taxes  which  a  municipality  may 
levy. 

A  general  tax  limitation  was  provided  as  follows:  In  the  act 
of  1917  it  was  provided  that  for  the  purpose  of  raising  revenue 
to  pay  the  expenses  incident  to  the  proper  government  of  the 
municipality  a  tax  not  exceeding  $1.25  on  the  $100  valuation 
should  be  levied,  "and  a  poll  tax  in  accordance  with  the  limita- 
tions of  the  Constitution."  The  act  of  1919  fixes  the  same 
limitation,  but  says  nothing  about  a  poll  tax.  By  the  act  of 
1920  it  was  provided  that  for  purposes  other  than  the  payment 
of  the  principal  and  interest  on  bonds  and  notes  the  tax  rate 
should  not  exceed  50  cents  on  the  $100.  The  act  of  1921  provides 
that  for  the  purpose  of  defraying  the  expenses  incident  to  the 
proper  government  the  municipality  may  levy  a  tax  not  exceeding 
$1  on  the  $100,  with  the  sweeping  provision  "notwithstanding 


r 


V 


'jrrL.^ 


^f^' 


»* 


TTniveesitt  of  N'oeth  Caeolina 


53 


any  other  law,  general  or  special,  heretofore  or  hereafter  enacted, 
except  a  law  hereafter  enacted  expressly  repealing  or  amending 
this  section." 

The  act  of  1921  came  up  for  consideration  in  the  case  of  Allen 
V.  City  of  Raleigh,  heretofore  referred  to.  The  City  of  Raleigh 
levied  a  tax  of  $1  on  the  $100  for  the  years  1921  and  1922  for 
current  and  general  purposes,  and  also  enacted  a  bond  ordinance 
to  issue  bonds  to  the  amount  of  $1,400,000  for  the  purpose  of 
constructing  sewers.  An  action  was  brought  to  restrain  the  collec- 
tion of  the  tax  and  the  enforcement  of  the  bond  ordinance,  on 
the  ground  that  the  act  under  which  the  city  was  operating  was 
void,  in  that  it  had  not  been  passed  according  to  the  requirements 
of  the  Constitution.  The  Court  sustained  this  contention  and 
declared  the  act  void,  at  least  as  to  those  parts  controlling  the 
contracting  debts  and  levying  taxes. 

This  act  having  been  declared  void,  the  law  previously  in 
existence  (the  act  of  1920)  would  apply;  but  it  appeared  to  be  the 
intention  of  the  l^slature  to  repeal  this  expressly,  and  it  there- 
fore left  the  act  of  1919  in  force.  Under  this  act  the  tax  limit 
was  $1.25  on  the  $100,  and  the  levy  in  question  was  within  this 
limit.  But  the  Revaluation  Act  of  1919,  c.  84,  s.  3,  provided  that 
under  such  revaluation  the  amount  of  taxation  should  not  exceed 
ten  per  cent  increase  over  that  previously  levied  until  the  legis- 
lature should  provide  for  such  increase.  It  appeared  that  in  the 
case  of  the  City  of  Raleigh,  the  levy  of  $1  on  the  $100  would 
increase  the  amount  more  than  ten  per  cent,  and  therefore  the 
levy  was  void. 

From  this  decision  it  would  appear  that  the  Municipal  Finance 
Act,  as  now  contained  in  the  Consolidated  Statutes,  is  the  law  now 
in  force,  certainly  as  to  taxation  and  contracting  debts;  that 
under  this  act  there  may  be  a  tax  levy  of  $1.25  on  the  $100, 
provided  this  does  not  increase  the  amount  of  taxation  more 
than  ten  per  cent  over  that  for  the  year  1919.  Since  this  limita- 
tion, in  the  view  of  the  governing  body  of  many  municipal 
corporations,  will  prevent  their  raising  sufficient  revenue  to  meet 
their  expenses,  a  special  session  of  the  legislature  has  been  asked 
for  to  remedy  the  defect.  At  such  special  session  the  whole 
subject  of  municipal  finance  will,  no  doubt,  be  again  considered, 
and  either  the  provisions  of  the  present  law  placed  beyond 
question  or  some  new  plan  devised. 

The  repealing  clauses  in  the  acts  of  1917  and  1919  are  not  as 
clear  as  they  might  be,  and  considerable  difficulty  was  expressed 


/ 


■I 


54 


Attainable  Standards  in  Municipal  Pboorams 


in  compiling  the  statutes,  with  not  a  very  satisfactory  result. 
The  repealing  section  of  the  act  of  1921  is  more  satisfactory 
and  something  of  that  kind  should  be  adopted  in  a  future  act  so 
as  to  prevent  any  misunderstanding  as  to  the  meaning  of  the  law, 

A  CRITICAL  REVIEW  OF  THE  NORTH  CAROLINA 

FINANCE  ACT 

Abthub  N.  Piebson,  Member  General  Assembly,  New  Jersey 

For  the  purpose  of  this  paper,  the  1921  Revision  of  the  Munici- 
pal Finance  Act  is  assumed  to  be  the  law.  In  general,  the  act 
is  excellent  and  contains  well  recognized  principles  of  public 
finance.  With  such  an  act  in  full  operation,  relieved  of  compli- 
cations arising  from  bad  financing  in  the  past,  it  must  be  evident 
that  much  good  will  result  from  its  operation.  There  are  a 
few  suggestions  that  I  am  prompted  to  present  in  connection  with 
some  of  its  provisions,  which  have  been  emphasized  by  !N'ew 
Jersey's  experience. 

The  first  is  that  the  budget  provisions,  including  the  financing 
in  anticipation  of  receipt  of  current  revenue,  should  be  entirely 
separated  from  the  bond  provisions,  paticularly  the  temporary 
financing  for  capital  expenditures,  which  only  relates  to  the 
issuance  of  bonds.  The  act  has  universal  application  and  the 
budget  provision  must  be  read  and  interpreted  by  many  inexpe- 
rienced officials  who  would  not  be  apt  to  keep  up  with  procedures. 
The  constant  changing  of  officials  has  taught  us  in  New  Jersey 
that  the  two  kinds  of  financing  should  be  made  very  distinct 
and  identified  by  different  classes  or  kinds  of  instruments,  so  that 
the  financing  in  anticipation  of  bond  sales  and  that  which  is 
supported  by  tax  revenues  may  be  identified  at  sight. 

As  I  understand  N'orth  Carolina's  provisions  for  collecting 
delinquent  taxes  by  sale  of  property,  it  would  seem  that  the  time 
limit  for  placing  the  unpaid  balance  of  obligations  issued  against 
tax  revenues  in  the  tax  budget,  should  be  extended  two  or  three 
years.  TJjider  the  present  provisions,  the  obligations  issued 
against  tax  revenues  would  be  forced  into  the  budget  before  the 
tax  sales  could  take  place.  In  this  connection,  it  is  suggested 
that  the  best  budget  policy  would  be  to  make  an  appropriation 
in  each  budget  to  cover  uncoUectables,  but  as  a  definite  safeguard, 
to  avoid  the  piling  up  of  floating  indebtedness,  a  mandatory  pro- 
vision such  as  above  must  be  included  in  any  well  balanced 
budget  act. 


H' 


^'> 


TJnivebsity  of  l^oBTH  Casouna 


55 


If  Section  2924,  referring  to  permanent  improvements,  refers 
to  such  permanent  improvements  as  may  be  paid  for  out  of 
the  current  revenues  or  taxes,  in  which  case  qualifying  language 
should  be  used,  this  section  is  in  order.  It  is  asssumed,  however, 
that  the  permanent  improvements  here  mentioned  might  be  inter- 
preted as  those  to  be  financed  by  bond  issue.  If  the  assumption 
is  correct,  such  an  item  in  the  budget  makes  it  unnecessarily 
complicated.  It  is  recognized  that  only  projects  that  are  paid  for 
from  current  revenues  have  a  place  in  the  budget.  At  the  same 
time,  it  is  accepted  as  certain  that  all  outlays  that  are  to  be  made 
from  current  funds  during  the  year,  must  have  a  budget  appro- 
priation for  their  support. 

The  provisions  of  Section  2925  might  be  considered  in  connec- 
tion with  the  suggestion  that  the  budget  be  printed  in  the  news- 
papers or  in  pamphlet  form  and  mailed  to  taxpayers.  The  theory 
in  support  of  such  a  suggestion  is  that  it  is  the  people's  business, 
concerning  which  they  should  have  every  information,  and  an 
informed  public  is  the  best  pleased  and  most  loyal. 

The  provisions  of  Section  2929,  allowing  for  the  amendment  of 
the  budget  to  make  available  revenues  not  included  in  the  original 
budget  as  anticipated,  destroys  the  best  purpose  of  a  budget.  If 
the  proviso  contained  in  the  second  paragraph  of  this  section 
were  moved  up  and  attached  to  the  first  paragraph,  after  the 
word  "purpose"  in  the  fourth  line,  striking  out  all  the  interme- 
diate matter,  North  Carolina  would  then  have  a  real  and  con- 
trolling budget.  This  would  restrict  all  expenditures  to  the 
original  budget  revenues.  It  cannot  be  argued  that  this  is  not 
good  practice,  nor  impracticable  in  operation.  N'ew  Jersey's 
municipalities  and  counties  have  made  four  annual  budgets  under 
such  r^ulation  and  it  proves  a  very  wholesome  check. 

This  appears  to  me  to  be  the  most  serious  fault  of  North  Caro- 
lina's budget  act.  Adequate  control  so  vitally  necessary  in  an 
effective  budget,  must  be  preserved  by  foreclosing  any  opportunity 
of  supplementing  the  original  budget.  This  point  is  so  essential 
that  it  must  be  pressed  for  consideration.  This  section  and  the 
above  suggestions  have  a  bearing  upon  the  principle  involved. 
The  following  section  and  comments  deal  with  the  manner  of 
preserving  such  control. 

The  provisions  of  Section  2930  are  not  practicable.  Appropria- 
tions are  supported  by  taxes,  fines,  fees  and  numerous  items  of 
miscellaneous  revenue.  It  would  be  difficult  to  determine  which 
appropriation  was  supported  by  taxes,  or  what  portion  of  a  given 


1)^ 


56 


Attainable  Standards  in  Municipal  Pkograms 


Univeesity  of  iN'oETH  Carolina 


ST 


m 


appropriation  was  taxes  and  which  came  from  miscellaneous  reve- 
nues. If  some  revenues  are  definitely  dedicated  to  a  specific  pur- 
pose, the  identification  can  be  preserved  in  the  surplus  revenues 
account  as  well  as  anywhere,  and  reappropriated  from  surplus 
revenues  to  the  specific  purpose.  At  the  end  of  each  budget 
period,  unexpended  balances  of  appropriations  should  balance 
into  a  surplus  revenues  account.  All  revenues  received  during 
the  year,  not  stated  in  the  budget  as  anticipated,  should  also  be 
placed  in  this  account  immediately  upon  their  receipt.  Any 
miscellaneous  revenues  received  in  excess  of  the  sum  total  as 
stated  as  anticipated  in  the  budget,  should  also  be  placed  into 
the  surplus  revenues  account.  By  such  provisions,  control  of 
the  budget  is  maintained,  and  when  the  books  are  closed  at  the 
end  of  the  fiscal  year,  the  only  open  account  is  the  surplus 
account,  which  should  be  treated  for  the  new  budget  as  revenues 
available  for  the  new  budget  period.  Such  an  account  is  similar 
to  the  P  &  L  account  in  commercial  bookkeeping. 

The  above  feature  is  that  which  makes  N'ew  Jersey's  budget 
plan  a  controlling  budget,  as  against  the  numerous  other  budgets 
which  are  not  under  control  and  which  seriously  fail  for  that 
reason.  While  New  Jersey's  act  is  much  more  restrictive  in 
many  particulars  than  the  N"orth  Carolina  act,  this  one  feature 
must  be  preserved,  or  any  budget  plan  will  fail  in  its  most 
important  function. 

Under  Section  2932,  the  basis  for  borrowing  is  fixed  as  the 
amount  of  the  appropriations.     This  is  an  unusual  basis   and 
would,  it  may  be  feared,  lead  to  many  unsatisfactory  conclusions, 
as  such  borrowing  would  be  upon  unexpended  balances  of  appro- 
priations, as  well  as  upon  the  amount  expended,  and  if  carried  to  a 
final  conclusion,  would  roll  up  indebtedness  for  which  there  was 
no  support.     A  better  practice  would  be  to  make  the  basis  for 
borrowing  upon  the  revenues  anticipated  for  the  support  of  the 
appropriations.     The  present  language,  if  employed  in  commer- 
cial practice,  would  be  like  a  merchant  asking  a  bank  to  loan 
him  to  the  amount  of  his  indebtedness,  whereas  the  banker  would, 
no  doubt,  insist  that  the  basis  should  be  upon  the  merchant's 
receivables.     An  added  complication  would  arise  in  determining 
the  proper  amount  to  be  placed  in  the  budget  to  retire  obligations 
at  the  end  of  the  following  year. 

Section    2933    is  necessary  for    any  program   of  financing  to 
preserve  the  credit  of  the  municipality  in  marketing  bonds,  and 


*  4 


'V"*****^^^ 


%  * 


*  * 


1^-  4^ 


a\ 


I-  4 


is  indispensable  in  states  that  have  tax  limits.  Tax  limits  of  any 
nature  injure  the  market  standing  of  bonds  at  all  times,  and  in 
stramed  money  markets  often  foreclose  any  bid  for  the  offering. 

Procedure  for  Borrowing  for  Capital  Purposes 

The  provisions  for  issuing  bonds  are  most  excellent.  The  direct 
language  sets  up  a  very  clear  procedure,  far  better  than  the  ISTew 
Jersey  act.  One  or  two  features,  however,  suggest  themselves  for 
consideration;  namely: 

Section  2952,    The  range  of  amounts  due  in  the  several  years 
of  the  series     The  two  and  a  half  times  range  was  evidently  made 
to  provide  for  a  practically  fixed  amount  of  principal  and  in- 
terest falling  due  each  year,  or,  foUowing  the  annuity  practice. 
11  this  IS  the  purpose  of  the  range,  I  would  suggest  inserting  after 
the  word     issue"  on  the  third  from  last  line,  the  following    "to 
the  end  that  the  interest,  together  with  the  principal  payments 
lalling  due  m  each  year,  shall  be  substantially  of  equal  amounts.'' 
As  the  section  now  stands,  it  would,  undoubtedly,  be  used    aU 
too  frequently  to  make  the  first  half  of  the  maturities,  say  $10,000 
and  the  second  half,  $25,000,  which  can  only  be  analyzed  as  plac- 
ing too  great  a  portion  of  the  burden  too  far  from  the  best  value 
of  the  improvement.     If  such  a  possibility  should  materialize  it 
would  throw  out  of  control  any  debt  limit.    A  consideration  which 
should  have  weight  when  the  annuity  feature  is  employed,  is  that 
the  replacements  and  upkeep  factor  €^hould  also  enter  into  the  cal- 
culations.    This,  for  the  early  life  of  the  improvement,  is  not 
great,  but  as  the  improvement  ages,  experience  has  shown  that  a 
substantial  overhead  must  be  provided  each  year  to  keep  the  im- 
provement at  par  of  efficiency.    Consequently,  there  is  substantial 
reason  why  this  factor  should  also  enter  into  the  consideration, 
and  if  this  is  done,  the  range  of  maturities  should  be  somewhat 
shortened,  possibly  to  about  double  rather  than  two  and  a  half 
times,  and  a  qualifying  clause  added  to  the  section  so  that  the  pay- 
ment of  interest  and  principal  shall  be  at  its  peak  at  the  beginning 
of  the  series  and  gradually  decrease  as  the  series  matures. 

Section  2957.  The  provision  of  Section  2957  in  the  next  to  the 
last  line,  is  open  to  serious  question.  Keference  is  made  to  the  use 
of  funds  from  bond  issues  for  marketing  bonds.  If  this  is  in- 
tended to  cover  legal  expenses,  engraving  and  printing  the  bonds, 
It  should  be  stated  in  such  terms.  "Marketing  bonds"  would  ad- 
mit of  the  payment  of  commissions  for  selling  bonds,  which  is 
exceedingly  dangerous  and  is  an  all  too  handy  way  of  defeating 
a  public  sale.    For  example,  if  the  board  in  charge  of  the  sale 


^j     i> 


f^ij 


V 


58 


Attainable  Standabds  in  Municipal  Peograms 


should  agree  with  a  bond  house  or  hank  to  pay  a  2%  commission 
for   marketing   the  bonds,   the   commission    payment   would   be 
equivalent  to  giving  such  a  party  something  that  it  did  not  earn. 
This  is  a  very  dangerous  practice  and  one  that  could  be  used  to 
destroy  the  'best  purposes  of  any  sale  provision.     For  instance 
under  the  present  6%   money  market,   should   51/2%   bonds  be 
offered,  no  bids  would  be  received.    Then,  no  doubt,  some  parties 
would  come  forward  offering  to  find  a  market  for  the  bonds  if  a 
6%  sales  commission  were  offered.    This  would  possibly  be  equiva- 
lent to  a  6%  sales  basis.    Bidders  of  good  faith  would,  thereby,  be 
foreclosed  m  the  competition  and  faithless  issuing  officers  and 
unprincipled  buyers   would   find   a   way  of  defeating  the  clear 
purposes  of  honest  government. 

Tax  Limits 

I  am  personally  not  an  advocate  of  tax  limits.     In  my  survey 
of  this  means  of  controlling  expenditures,  covering  some  15  or  20 
years,  the  sum  total  of  results  has  been  anything  but  assuring.    A 
budget  policy  that  will  absolutely  force  every  expenditure  properly 
chargeable  to  current  expenses,  through  the  controlling  budget,  is 
the   best  means  of  controlling  extravagances.     The  budget,  'to- 
gether with  the  accompanying  tax  rate,  would  then  express  the 
true  cost  of  government  for  the  full  budget  period,  bringing  to  the 
^payer  the  knowledge  he  should  have  of  governmental  costs. 
This  is  the  only  means  by  which  extravagance  and  unwarranted 
expenditures  can  be  checked  without  at  the  same  time  hampering 
much  good  purpose.    The  means  employed  in  the  past  for  rolling 
back  the  costs  of  government  enjoyed  by  that  generation  to  some 
future  generation,  has  deprived  the  taxpayer  of  a  knowledge  of 
what  the  sort  of  government  he  demands,  really  costs.     Conse- 
quently, he  has  gone  far  in  demanding  better  and  more  refined 
service  without  fully  appreciating  that   such  demand   finds  its 
reflection  in  increased  taxes.    Some  communities  demand,  and  are 
willing  to  pay  for,  greater  and  more  refined  service  than  others, 
and  I  believe  they  should  be  allowed  to  have  it  so  long  as  the 
taxpayers  of  that  budget  period  pay  for  the  service  they  demand. 

Debt  Limit 

North  Carolina  is  to  be  congratulated  upon  its  effort  to  have 
a  uniform  bond  procedure,  that  has  universal  application,  and 
under  a  fixed  limit.  Much  embarrassment  will  be  saved  for  the 
future  by  such  legislation  for  municipal  and  county  financing 
for  capital  purposes. 


K 


■r. 


aN 


>. 


Univebsity  of  N'oeth  Carolina 


If  the  assumption  is  correct  that  the  cost  of  erecting  schools 
is  carried  by  the  county,  excepting  special  school  districts  which 
include  a  few  cities,  and  this  law  does  not  include  a  program  for 
financing  county  needs,  then  careful  consideration  should  be  given 
to  the  debt  limit  as  set  forth  in  Sub-section  2  of  Section  2943, 
where  8%  of  the  assessed  valuation  as  last  recorded,  is  fixed  as  the 
limit.  This  seems  dangerously  high  when  the  liberal  schedules 
of  deductions  are  taken  into  consideration,  and  on  the  assumption 
that  under  a  recent  revaluation,  property  is  now  assessed  between 
70%  and  80%  of  true  value,  a  ^\%  or  six  per  cent  limit  is  as  high 
as  can  be  carried  mth  safety.  To  prescribe  a  limit  that  mil 
produce  an  equitable  control  in  connection  with  the  special  school 
districts,  an  exemption  should  be  made  for  school  indebtedness, 
say  3%.    This  would  result  in  more  equitable  control. 

^  It  would  be  a  part  of  wisdom  to  carefully  analyze  the  limita- 
tion to  ascertain  what  proportion  of  the  annual  tax  levy  would 
be  absorbed  by  a  debt  service  that  was  at  its  limit,  as,  regardless 
of  limits  fixed  by  law,  there  is  an  economic  limit  to  the  amount 
of  taxes  that  can  be  placed  upon  property  without  destroying 
its  value. 

An  accepted  theory  is  that  20%  of  the  total  revenues  levied  can 
be  comfortably  allotted  to  debt  service  and  that  25%  is  the  limit 
that  property  can  carry  with  safety.  Anything  above  this  becomes 
dangerous,  if  not,  in  reality,  confiscatory.  This  should  be  inter- 
preted to  mean  that  a  debt  service  burden  of  over  25%  destroys 
faster  than  the  benefits  derived  from  the  debt  incurred,  can  create. 

It  is  a  serious  question  whether  exemptions  of  indebtedness 
for  public  enterprises  should  be  made  unless  such  enterprises  are 
self-sustaining.  Without  this  safeguard,  this  invitation  is  given 
for  experiments  and  unwarranted  adventure  which  may  be  most 
disastrous. 

It  is  observed  that  the  average  of  the  last  three  assessed  valua- 
tions was  employed  in  the  original  law,  but  omitted  in  the  1921 
enactment,  but  the  reason  for  omission  is  not  apparent,  as  it  is 
understood  that  the  valuations  were  increased  by  the  revaluation 
act  from  two  to  three  times,  which  increased  the  borrowing  power 
practically  in  the  same  proportion.  Under  the  present  rate,  if 
two  years  of  the  old  valuation  and  one  year  of  the  new  valuation 
had  been  employed,  the  increase  at  a  fixed  limit  rate  would  have 
been  one-third,  by  another  year,  two-thirds,  and  in  the  third 
year,  doubled. 

The  cotnclusion  would  be  that  if  municipalities  ^functioned 
under  the  original  act,  no  hardship  would  have  been  found  in 


\ 


> 


IV 


I    I 


:  I 


! 


60 


Attaiwable  Standards  m  Municipal  Peoorams 


keeping  the  average  basis,  the  merits  of  which  must  appear  to 
reason;  namely  that  it  lessens  temptation  to  arbitrarily  increase 
valuations  for  the  purpose  of  obtaining  borrowing  power,  thereby 
placing  this  important  factor  of  control  on  a  nataral  Valuation 

Comments  As  I  have  been  able  to  grasp  North  Carolina's 
financial  problems,  it  would  seem  that  two  or  three  policies  must 
be  adopted  in  connection  with  the  present  finance  act  in  order 
that  Its  provisions  may  have  a  fair  opportunity  to  serve  their 
purpose. 

Floating  Indebtedness 

A  grand  accounting  of  all  indebtedness  that  is  not  evidenced 

by  pemanent  bonds,  and  on  the  other  side,  a  listing  of  all  the 

receivables,  such  as  uncollected   taxes,  uncollected   assessments, 

moneys  due,  etc     Set  apart  such  portion  of  the  indebtedness  as 

may  be  carried  under  the  law  by  these  several  items  of  asset  and 

reissue   m  the  fom  of  such   instruments   as   are  contemplated 

by  the  municipal  finance  act,  classifying  all  other  indebtedness 

as  floating  indebtedness,  and  provide  for  permanently  financing 

this  by  a  serial  bond  issue     In  this  way,  no  added  debt  obligation 

8  created,  but  the  slate  is  cleared  and  the  future  conduct  of 

fte  finances  of  the  community  wiU  then  be  unhampered  and 

without  complications. 

w Jm  \^"T  "^^  •  P"'''^?^  ''^  ^^^  ^^"^y'  aad  it  is  felt  that  it 
would  have  been  impossible  to  have  made  effective  the  financial 
program  without  such  housecleaning.  nnanoiai 

Sinking  Fond 

Undoubtedly,  there  are  large  items  of  bonded  indebtedness  for 
which  no  adequate  provisions  for  amortization  have  been  made. 
These  are  burdens  inherited  from  the  past,  but  this  does  not 
justify  passing  them  on  to  successors  as  they  were  passed  on  to 
the  P'efnt  generation.  It  seems  clear  that  a  complete  valuation 
tL^l  ^  A  indebtedness  and  its  sinking  fund  requirements 
should  be  made,  based  upon  a  fixed  standard,  and  from  such  a 
time  on,  each  community  should  keep  at  par  its  annual  sinking 

™^^/TT*^°l  """^  "^  "l'^'*'*"''  contribute  something  each 
year  to  the  deficit  account,  where  same  shall  be  found  neeessarv 
as  a  result  of  the  above  valuation.  necessary 

In  this  way  a  policy  is  ^tablished  which,  at  some  time,  will 
amortize  the  present  funded  debt  obligations.  This  plan  was 
adopted  m  New  Jersey,  and  the  Commissioner  reports  that  onty 


♦  « 


4> 


»» 


University  of  !N'oeth  Carolina 


61 


a  very  small  percentage  of  tlie  communities  will  be  obliged  to 
refund  any  of  their  issues  and  he  looks  forward  to  the  time 
when  all  New  Jersey  municipalities  will  have  sinking  funds  that 
are  at  par  with  their  obligations.  If  some  such  plan  is  not  adopted, 
it  must  be  evident  that  all  hope  to  work  out  from  under  a  bad 
financial  program  of  the  past  must  be  abandoned,  which  will 
tend  to  discourage  public  officials  and  they  will  assume  the  policy 
of  passing  the  obligations  on  to  the  future,  as  they  were  passed 
on  to  them  by  their  predecessors. 

Snperyislon  and  Control 

This  is  a  vital  factor  in  any  forward-looking  program  of  this 
nature.  A  duly  constituted  state  department  with  adequate  pow- 
ers would  prove  a  most  beneficial  and  helpful  agency.  Such  a 
department  would  greatly  assist  public  officials  by  suggestion  and 
advice,  and  would  protect  the  taxpayers'  interests  by  its  audits 
and  supervision.  At  first,  public  officials  in  New  Jersey  did 
not  receive  this  feature  of  the  financial  program  with  confidence, 
but  now  view  the  department  as  an  indispensable  adviser  and 
coofficial,  appealing  to  it  for  direction  and  help  in  every  conceiv- 
able problem.  The  auditors  are  now  invited  to  visit  cities  for 
conference  and  assistance,  whereas,  at  first,  they  were  viewed  as 
spies  or  detectives.  When  one  reflects  that  an  honest  official,  as 
well  as  an  honest  citizen,  does  not  fear  the  officers  of  the  law, 
no  matter  how  much  in  error  he  has  been  in  interpreting  the  law 
or  conducting  his  business,  it  is  clear  that  the  quality  of  the 
purpose  makes  the  difference  in  the  attitude  toward  the  official 
It  is  not  the  purpose  of  this  suggestion  to  advocate  a  control 
over  the  forms  for  bond  procedure,  but  more  for  supervision  over 
budgets,  sinking  funds,  uniform  accounting  and  audits. 

MUNICIPAL  FINANCE  PROBLEMS 

IN  NOKTH  CAROLINA 

Gallatin  Robbets,  President  of  the  North  Carolina  Municipal  Association ; 

Mayor   of   Asheville 

The  Legislature  of  l^orth  Carolina,  Session  1915,  submitted  to 
the  people  certain  amendments  to  the  State  Constitution  which 
prohibited  the  enactment  of  special  legislation  amending  the 
charter  of  municipal  and  other  corporations,  and  made  it  the 
duty  of  the  General  Assembly  to  provide  by  general  laws  for 
the  organization  of  cities,  towns,  etc.,  and  to  restrict  their  power 
of  taxation,  assessment,  borrowing  money,  contracting  debts, 
loaning  their  credit,  so  as  to  prevent  abuses  in  assessment  by 
municipal  corporations. 


)i 


62 


Attainable  Standaeds  in  Municipal  Pboorams 


At  the  general  election  held  in  iN'ovemher,  1916,  the  said  amend- 
ments were  adopted  by  a  vote  of  the  people  of  the  State,  and 
when  the  Legislature  assembled  in  January,  1917,  a  law  was  passed 
known  as  the  "Municipal  Finance  Act."  This  act  was  a  new 
departure  in  financial  legislation  in  Worth  Carolina,  and  in  many 
respects  the  measure  is  a  good  one.  The  budget  system  is  strongly 
recognized  in  this  act,  and  no  one  who  has  ever  given  the  subject 
any  thought  at  all  will  gainsay  this  provision  of  the  law ;  counties, 
cities,  states,  and  nations  will  all  ultimately  adopt  the  budget 
system.  An  itemized  estimate  of  the  appropriations  necessary 
to  be  made  for  current  expenses  and  also  for  permanent  improve- 
ments for  each  department  of  the  municipal  government,  and  also 
an  itemized  estimate  of  the  taxes  required  from  all  sources,  is 
absolutely  necessary  for  an  intelligent  and  comprehensive  under- 
standing of  the  financial  affairs  of  any  town  or  city.  Another  wise 
provision  of  the  act  provides  that  a  copy  of  the  budget  shall  be 
filed  in  the  office  of  the  clerk  of  the  town  or  city  for  inspection 
by  any  interested  citizen  not  later  than  ten  days  before  its  adop- 
tion by  the  governing  body,  and  a  public  hearing  shall  be  given 
before  the  budget  is  finally  adopted.  This  is  a  splendid  provision, 
and  should  be  retained  in  the  law  by  all  means. 

By  an  examination  of  section  37  of  this  act  it  will  be  found  that 
the  Legislature  at  least  attempted  to  carry  out  what  was  in  the 
minds  of  the  members  of  the  Legislature  in  1915  when  chapter 
99  was  enacted,  which  provided  that  the  Legislature  should  restrict 
the  power  of  taxation.  Section  37  provides  that  an  annual  ad 
valorem  tax  on  all  taxable  property  in  the  municipality  of  and  at 
the  rate  of  not  exceeding  $1.25  on  the  $100  valuation  of  property. 

These  are  only  a  few  of  the  many  valuable  provisions  of  the 
Municipal  Finance  Act  as  originally  drafted  and  passed  in  1917. 

In  1919,  the  Legislature  passed  chapter  84,  known  as  the 
"Revaluation  Act,"  which  contained  a  very  unwise  and  unfortu- 
nate provision,  and  in  my  opinion,  cost  the  various  cities  and 
towns  of  IN^orth  Carolina  many  millions  of  dollars.  The  provision 
reads  as  follows : 

"The  assessment  made  under  the  provisions  of  this  Act  shall 
not  be  used  as  the  basis  for  computation  of  taxes  unless  and 
until  the  same  has  been  approved  by  the  General  Assembly,  and 
until  the  tax  rates  levied  by  the  State  have  been  revised  by  the 
General  Assembly,  and  the  tax  rate  levied  by  the  counties,  cities, 
towns,  and  special  tax  districts  of  the  State  have  been  revised 
under  rules  to  be  laid  down  by  the  General  Assembly,  and  such 


Univebsity  of  I^obth  Carolina 


ea 


rates  shall  in  all  cases  be  so  adjusted  that  an  increase  in  revenue 
from  the  general  property  tax  of  not  more  than  ten  per  cent  shall 
he  levied  and  collected  in  the  year  1920  than  was  levied  and  col- 
lected in  the  year  1919.  This  provision  is  what  "broke  the  camePs 
back." 

Long  before  the  extra  session  of  the  Legislature  in  the  summer 
of  1920,  the  various  cities  and  towns  of  the  State  realized  the 
financial  situation  confronting  them,  by  reason  of  this  ten  per  cent 
provision.  The  N'orth  Carolina  Municipal  Association  met  in 
the  City  of  Raleigh  in  a  three  days'  session  and  passed  strong 
resolutions  requesting  the  members  of  the  Legislature,  soon  to 
assemble  in  extraordinary  session,  to  grant  some  relief,  and  also 
appointed  a  strong  committee  to  go  before  the  Finance  Committee 
of  both  houses  of  the  Assembly  and  present  to  said  committee  the 
pitiful  plight  in  which  the  cities  and  towns  had  been  thrown. 

It  was  generally  admitted  that  the  Legislature  of  1919  had 
made  a  great  mistake  in  limiting  the  taxing  powers  of  the  cities 
and  towns  to  the  niggardly  ten  per  cent  limitations,  when  it  was  a 
well  known  and  undisputed  fact  that  the  price  of  everything 
the  cities  had  to  buy  was  50  to  100  per  cent  higher  than  in  former 
years;  that  every  city  in  the  State  had  to  raise  the  salaries  of 
its  employees  from  twenty  to  forty  per  cent. 

The  Finance  Committee  of  the  extra  session  of  1920  heard  the 
representatives  of  the  cities  of  the  State  patiently  and  seemed 
to  appreciate  the  situation,  and  finally  Chapter  3,  Public  Laws, 
Extra  Session  1920,  was  passed,  which  provided  that  municipali- 
ties in  compiling  their  budgets  might  include  therein  an  item  to 
be  known  as  "Estimated  deficit  for  1920,"  not  to  exceed  40  per 
cent  of  the  estimated  amount  of  property  taxes  for  the  fiscal  year, 
beginning  in  the  year  1920. 

The  Municipal  Association  of  IN'orth  Carolina,  composed  of 
men  who  had  given  the  financial  situation  of  the  cities  of  the 
State  most  careful  consideration,  not  only  convinced  the  members 
of  the  Legislature  that  some  relief  was  imperative,  but  the  people 
generally  and  the  press  of  the  State  conceded  that  if  the  cities 
and  towns  of  the  State  were  to  continue  to  function,  financial 
relief  must  be  forthcoming. 

The  special  session  of  the  Legislature  of  1920  passed  another 
act  which  was  very  unfortunate  for  the  municipalities  of  the 
State.  Chapter  3,  Public  Laws  1920,  Extra  Session,  provides  in 
section  8  thereof  that  the  cities  can  only  levy  and  collect  an  annual 


64 


Attainable  Standards  in  Municipal  Programs 


ad  valorem  tax  on  all  taxable  property  of  50  cents  on  each  one 
hundred  dollars  valuation. 

This  provision,  coupled  with  the  10  per  cent  limitation,  was 
a  death  blow  to  the  towns  and  cities  of  the  State  in  so  far  as 
future  progress  was  concerned,  unless  these  limitations  should  be 
Hfted. 

To  make  the  situation  even  more  embarrassing,  the  act  further 
provided  that  even  before  any  town  or  city  could  avail  itself  of 
the  10  per  cent  increase  in  revenue,  the  approval  of  the  Municipal 
Board  of  Control  must  be  obtained,  and  I  am  informed  that  but 
very  few  municipalities  made  any  effort  to  get  the  approval  of 
said  board  even  though  every  city  and  town  in  the  State  levied 
the  10  per  cent  increase. 

The  city  officials  of  the  State  were  looking  anxiously  for 
relief  when  the  Legislature  should  assemble  in  1921.  Again  the 
Municipal  Association  met  in  Raleigh  and  unanimously  made 
certain  recommendations  to  the  members  of  the  Legislature  which 
would  give  the  necessary  relief.  A  bill  was  drawn  to  amend 
and  reinact  the  Municipal  Finance  Act.  This  act  provided  that 
for  the  purpose  of  raising  revenue  for  defraying  the  expenses 
incident  to  the  proper  government  of  any  city  or  town  in  the 
State,  the  government  body  was  authorized  to  levy  and  collect 
an  ad  valorem  tax  on  all  taxable  property  of  one  dollar  on  the 
hundred  dollars  valuation,  and  a  net  debt  limit  of  8  per  cent 
was  authorized.  This  act  was  speedily  enacted  by  the  Legisla- 
ture, and  the  city  officials  of  the  State  felt  that  their  troubles 
were,  at  least,  partially  over,  but  like  a  "thunder  clap  from  a 
clear  sky,"  came  the  information  over  the  wires  that  an  error 
had  been  made  by  a  clerk  in  the  Senate  and  that  the  act  was 
null  and  void.  The  case  went  to  the  Supreme  Court  at  the 
instigation  of  the  Municipal  Association,  and  the  Court  promptly 
declared  the  act  invalid,  Justice  Hoke  writing  the  opinion. 

At  the  earnest  request  of  tjie  Municipal  Association,  His 
Excellency,  the  Governor,  has  issued  a  call  for  an  extra  session 
of  Legislature  to  convene  in  Raleigh  in  December,  to  relieve 
cities  and  towns  of  the  serious  financial  difficulties  confronting 
them.  Since  this  law  was  declared  of  no  effect  there  has  been 
nothing  but  confusion,  doubt  and  uncertainty  as  to  our  financial 
status  over  the  entire  country. 

The  situation,  as  it  now  exists,  is  most  serious;  everything  is 
at  a  standstill.  The  people  of  my  home  city  voted  $550,000,  school 
bonds,   at  the  same  election  when  this  program  was  approved 


> 


*     1   » 


TJnivebsity  of  !N'oeth  Caeolina 


65 


iJ> 


by  the  people,  the  governing  body  was  authorized  to  levy  and 
collect  an  additional  special  tax  of  10  cents  on  the  hundred 
dollars  valuation  for  the  operating  expenses  of  our  school  system ; 
but  since  the  act  of  1921  was  declared  void,  there  is  grave  doubt 
whether  or  not  even  this  tax  can  be  legally  levied  and  collected 
until  the  Legislature  passes  a  validating  statute.  This  authority 
was  undoubtedly  provided  in  Chapter  1  of  the  Public  Laws,  1920, 
Extra  Session,  but  the  Supreme  Court  in  the  decision  above 
referred  to  says:  "We  have  not  adverted  to  the  statute  on  the 
subject  passed  at  the  Special  Session,  1920,  Chapter  1  and  3,  for 
the  reason  that  the  former  ouly  professes  to  apply  to  the  year 
1919  and  1920,  and  the  latter,  on  matters  relevant  to  this  inquiry, 
is  expressly  repealed  by  the  law  of  1921,  and  in  terms  that  clearly 
show  that  an  absolute  repeal  was  intended." 

It  was  contended  by  some  people  that  the  cities  of  IPTorth 
Carolina  could  borrow  money  to  tide  the  situation  over  without 
a  Special  Session  of  the  Legislature,  but  a  careful  examination 
of  the  statutes  will  dispel  this  contention.  The  statute  says: 
"A  municipality  may  borrow  money  for  the  purpose  of  meeting  ap- 
propriations made  for  the  current  fi&cal  year,  in  anticipation  of 
the  collection  of  the  taxes  and  revenues  of  such  fiscal  year  and 
within  the  amount  of  such  appropriations. 

In  the  face  of  this  statute  the  argument  that  the  cities  could 
borrow  funds  to  take  care  of  the  deficit  for  the  years  1921-22 
in  anticipation  of  the  collection  of  taxes  for  any  other  succeeding 
year  is  dispelled.  The  cities  of  the  State,  as  the  law  now  stands, 
are  left  with  no  legal  power  to  secure  funds  to  permit  them 
to  properly  function,  and  they  will,  unless  the  legislature  grants 
relief,  be  compelled  to  cut  operating  expenses  to  the  quick. 

I  feel  that  a  spirit  of  optimism  pervades  the  country,  and 
soon  the  financial  skies  will  clear  and  the  embarrassment  through 
which  the  cities  and  towns  of  ^NTorth  Carolina  have  passed  will 
soon  be  forgotten. 

Theie  is  another  matter  I  feel  sure  city  officials  of  North 
Carolina  would  like  to  see  understood  and  determined,  namely, 
whether  or  not  a  municipality  can  pledge  its  faith  or  loan  its 
credit  to  purchase  city  parks  and  playgrounds  without  going  to 
the  expense  of  holding  an  election  for  said  purpose.  I  am  of  the 
opinion  that  the  Supreme  Court  would  instantly  decide  that 
such  important  things  as  public  parks  and  playgrounds  are  neces- 
sary expenses.    A  test  case  should  be  made  at  an  early  date. 


1/ 


66 


Attainable  Standards  in  Municipal  Fboobams 


Univeesity  of  !N'orth  Cabolina 


67 


In  many  of  the  cities  and  towns  of  !N'orth  Carolina  little 
importance  has  been  attached  to  municipal  accounting.  I  am 
persuaded  to  believe  that  a  uniform  system  of  bookkeeping  or 
accounting  is  desirable.  In  many- towns  the  records  are  so  meager 
that  it  is  impossible  for  the  taxpayers,  who  are  the  stockholders, 
to  understand  but  little  about  the  financial  condition  of  their 
town  or  city.  A  system  of  uniform  accounting  would  enable 
taxpayers  to  easily  compare  the  financial  affairs  in  his  home  town 
or  city  with  the  administration  of  affairs  in  other  towns  and  cities 
of  the  State. 

The  accounting  system  of  the  City  of  Asheville  is  based  on  the 
most  modern  business  methods.  The  minutes  of  the  board  of 
city  commissioners  who  meet  in  daily  session,  are  typewritten, 
a  loose-leaf  binder  being  used.  All  cash  receipts  are  turned  into 
the  tax  collector  daily  by  the  various  departments,  'together 
with  an  itemized  statement  in  duplicate.  He  files  a  copy  of  such 
rejwrt  in  his  office,  and  deposits  the  original  with  the  cash  in  the 
office  of  the  secretary-treasurer,  and  he,  in  turn,  makes  daily 
deposits  in  the  banks.  This  not  only  establishes  a  check  on  the 
treasurer  but  enables  the  city  to  receive  interest  from  the  banks 
on  every  cent  of  its  revenue.  Under  the  city  charter  the  banks 
are  required  to  pay  4%  on  the  city's  daily  balances. 

STATE  SUPERVISIOIV  OF  COUNTI 
AND  MUNICIPAL  ACCOUNTS 

Theodore  N.  Waddkll,  Director  of  Accounts,  Department  of  Corporations 

and   Taxation,   Massachusetts 

The  extent  to  which  there  should  be  state  supervision  of  county 
and  municipal  finances  is  capable  of  a  most  interesting  discussion. 
Many  arguments  can  be  advanced  both  for  and  against  such 
supervision. 

From  the  very  beginning  of  organized  government,  the  need  of 
a  strong  central  government  was  recognized,  and  this  central 
unit,  from  the  beginning  of  the  history  of  this  great  country  of 
ours,  has  been  known  as  the  State.  In  Massachusetts,  town  gov- 
ernments have  possessed  certain  inalienable  rights,  and  the  mo- 
ment an  attempt  is  made  to  enact  legislation  which  permits  a 
representative  of  a  jstat^  department  to  exercise  certain  authority 
without  the  express  approval  of  the  town  in  meeting  assembled, 
we  hear  the  cry  of  state  interference  with  home  rule.  The  fact 
that,  after  all,  the  subdivisions  of  a  State  are  creatures  of  the 


*  ■  • 


t  ■  « 


A 


State  and  that  rights  and  privileges  enjoyed  by  them  are  granted 
by  the  State,  is  generally  overlooked.  How  then  should  we 
proceed? 

In  answer  to  this  question,  I  will  give  you  a  brief  outline  of 
what  has  been  done  in  Massachusetts.  In  1887  the  office  of  con- 
troller of  county  accounts  was  established,  and  in  1906  an  act 
was^  passed  authorizing  the  gathering  and  publication  of  financial 
statistics  of  cities  and  towns.  The  latter  act  was,  I  think,  largely 
the  result  of  the  activities  of  the  body  here  assembled,  and  if 
other  sections  of  the  country  have  ^benefited  correspondingly 
with  Massachusetts,  you  surely  have  reason  to  be  proud  of  the 
work  performed. 

As  a  result  of  the  1906  legislation,  the  municipal  division  of 
the^  bureau  of  statistics  was  established.  Two  distinct  organi- 
zations were  continued  until  the  general  consolidation  of  state 
departments  in  1919,  when  the  work  of  the  controller  of  county 
accounts  was  merged  with  the  municipal  division  of  the  bureau 
of  statistics,  which  is  now  the  division  of  accounts  in  the  depart- 
ment of  corporations  and  taxation. 

The  county  work  includes  a  complete  audit  of  the  various 
accounts  of  county  officers  annually,  as  well  as  the  submitting  to 
the  Legislature  of  county  budgets,  which  must  be  approved  by  it. 
Much  progress  has  been  made  in  bringing  about  uniformity  in 
the  accounting,  but  there  remains  certain  work  which  must  be 
done  in  order  to  show  more  definitely  function  and  activity  costs, 
but  this  problem  can  be  solved  easily,  as  there  is  a  spirit  of 
cordial  cooperation  between  our  office  and  the  several  county 
officials. 

At  the  time  the  work  of  collecting  statistics  of  the  financial 
transactions  of  cities  and  towns  was  undertaken,  it  proved  to  be 
a  serious  task,  since  there  were  353  cities  and  towns  with  almost 
as  many  plans  of  accounting.  In  laying  out  the  work,  a  simple 
yet  comprehensive  schedule,  with  supporting  supplemental,  was 
prepared  on  which  municipal  officials  were  to  make  returns  to 
our  offiice.  In  endeavoring  to  make  these  returns,  however,  many 
of  our  municipalities  found  that  their  methods  of  accounting  were 
Sfuch  that  it  was  next  to  impossible  to  properly  fill  the  schedules, 
and  immediate  requests  for  assistance  in  revising  their  systems 
were  made.  As  the  returns  of  financial  transactions  were  received 
and  special  examinations  were  made,  it  was  found  that  methods 
of  financing  of  long  standing  needed  to  be  changed.  This  was 
particularly  true  regarding  the  handling  of  trust  funds,  the  issu- 
ance of  demand  notes,  the  refunding  of  loans  in  order  to  tempo- 


I 


r 


68 


Attainable  Standards  in  Municipal  Peoqbams 


TJniveesity  of  N'oeth  Cabolina 


69 


rarily  relieve  the  taxpayer,  and  the  failure  to  properly  provide 
for  sinking  funds  v^hich  had  been  established  for  the  retirement 
of  certain  debts  incurred. 

We  began  the  work  of  reconstructing  municipal  accounting 
methods  by  installing  systems  which  any  one  with  ordinary  in- 
telligence could  operate,  and  at  the  same  time  we  obtained, 
through  the  systems  installed,  facts  relative  to  revenues  and  ex- 
penditures and  concerning  the  true  financial  condition  of  the 
municipalities.  In  prescribing  a  system  of  accounts  for  any  city 
or  town,  proper  consideration  should  be  given  to  its  particular 
needs;  therefore  the  system  devised  by  the  division  of  accounts 
has  been  planned  so  that  it  is  capable  of  adjustment  to  varying 
local  conditions  without  sacrifice  of  principle,  and  it  gives,  as  a 
result,  comparable  figures  which  can  be  used  in  forming  deduc- 
tions as  to  the  efficiency  or  inefficiency  of  officials.  It  would  be 
foolish  to  contend  that  the  system  prescribed  will  of  itself  auto- 
matically reduce  expenditures,  but  we  do  claim  that  it  will  point 
out  the  facts  in  regard  to  expenditures  and  the  financial  condi- 
tion of  the  municipality,  so  that  there  will  not  be  any  excuse  for 
a  continuation  of  careless  methods  of  financiering. 

It  has  been  our  policy  to  operate  under  permissive  legislation 
until  it  can  be  thoroughly  demonstrated  that  compulsory  legisla- 
tion is  necessary,  and  I  find  that  almost  invariably  the  citizens 
as  a  whole  need  only  to  be  shown  the  benefits  to  be  derived  from 
a  change  in  methods,  to  be  ready  and  willing  to  join  in  the  work, 
so  that  the  task  is  more  than  half  finished  when  the  work  is  begun. 

In  1910  an  act  was  passed  authorizing  cities  and  towns  to  pe- 
tition for  an  audit  of  their  accounts  and  also  for  the  installation 
of  an  accounting  system.  In  the  same  year  it  was  provided  that 
on  and  after  January  1,  1911,  all  town  notes  should  be  issued  on 
a  form  prescribed  by  the  state  bureau,  and  that  they  should  be 
certified  by  us  before  becoming  a  valid  obligation.  During  the 
first  year  of  the  operation  of  the  act  notes  were  issued  to  the 
amount  of  more  than  $9,000,000,  and  during  the  first  eight 
months  of  the  current  year  the  notes  issued  aggregated  more  than 
$23,000,000.  This  increase  is  due  to  two  causes:  first,  that  more 
money  is  needed  by  the  municipalities,  and  second,  that  many  of 
our  towns  issue  notes  to  the  exclusion  of  bonds,  regardless  of  the 
period  of  the  loan.  AJs  one  of  the  men  in  charge  of  the  bond 
department  of  one  of  our  largest  banks  expressed  it:  "There 
was  a  time  when  interest  rates  on  town  securities  were  as  much 
as  one-half  of  one  per  cent  above  the  rates  for  cities,  but  with 
the  present  supervision,  town  notes  are  now  on  a  par  with  city 


*  m  ■* 


bonds."  We  feel  certain  that  the  field  for  town  securities  has  been 
materially  broadened,  which  naturally  operates  to  the  advantage 
of  our  towns. 

In  1912  a  special  report  was  made  to  the  Legislature  r^ard- 
ing  methods  employed  and  the  condition  of  the  finances  of  the 
several  cities  and  towns.  This  report  was  submitted  to  a  special 
committee,  which  made  an  exhaustive  study  of  the  subject  and 
recommended  many  changes  in  the  statutes  affecting  cities  and 
towns.  Included  in  the  legislation  passed  in  1913  will  be  found 
the  following  acts  resulting  from  this  investigation : 

An  Act  relative  to  Municipal  Indebtedness.    Chapter  719. 

An  Act  to  provide  for  the  Payment  of  Outstanding  Demand  Notes 
and  the  Restoration  of  Trust  Funds  by  Cities  and  Towns. 
Chapter  634. 

An  Act  relative  to  Petitions  for  Legislation  authorizing  Cities 
and  Towns  to  Borrow  Money  Outside  the  Statutory  Limit  of 
Indebtedness.    Chapter  677. 

An  Act  relative  to  the  Certification  of  Town  Notes  by  the  Director 
of  the  Bureau  of  Statistics.    Chapter  416. 

An  Act  relative  to  the  Issuing  of  Notes  by  Fire,  Water,  Watch, 
Light  and  Improvement  Districts.     Chapter  727. 

An  Act  relative  to  the  Establishment  of  a  Reserve  Fund  by  Towns. 
Chapter  645. 

An  Act  relative  to  the  Approval  of  Bills  against  Cities  and  Towns. 
Chapter  669. 

An  Act  to  provide  that  all  Fay-rolls,  Bills,  and  Accounts  for  Com- 
pensation of  Persons  in  the  Service  of  any  City  other  than 
Boston  shall  be  Verified  by  Oath.     Chapter  825. 

An  Act  to  establish  the  Financial  Year  of  Towns.    Chapter  692. 

An  Act  relative  to  the  Auditing  by  the  Director  of  the  Bureau 
of  Statistics  of  Municipal  Accounts.     Chapter  706. 

An  Act  relative  to  the  Collection  of  Poll  Taxes.    Chapter  679. 

An  Act  relative  to  the  Overlay  of  Taxes.    Chapter  649. 

An  Act  to  Facilitate  the  Prompt  Payment  of  Taxes.    Chapter  824. 

An  Act  requiring  Towns  to  Vote  on  the  Question  of  an  Audit  by 
the  Bureau  of  Statistics.    Chapter  706. 

The  first  of  the  acts  above  referred  to — the  municipal  in- 
de^btedness  act — ^was  extremely  broad  in  scope.     It  specified  the 


D 


A 


7^         Attainah^  Standasdb  tn  Municipal  Pboqrams 

purposes  for  wMch  cities  and  towns  could  borrow  money  as  well 
as  the  maximum  period  the  loans  could  run;  it  prohibited  the 
establishment  of  future  sinking  funds,  compelling  all  future  loans 
to  be  issued  by  the  serial  method,  so-called;  it  required  the  first 
payment  on  a  loan  to  be  made  not  later  than  one  year  from  the 
date  of  issue,  and  further  provided  that  no  payment  on  account 
of  any  loan  in  any  year  should  be  greater  than  the  payment  on 
such  loan  in  any  preceding  year;  it  provided  for  a  budget  sys- 
tem and  prohibited  overdrafts;  and  it  established  trust  funds  on 
a  permanent  basis,  so  that  they  would  be  of  real  benefit  to  a 
municipality  rather  than  more  or  less  of  a  liability,  as  they  had 
been  in  the  past.  As  specified  by  this  act  the  purposes  for  which 
cities  and  towns  may  borrow  inside  the  debt  limit,  together  with 
the  period  such  debts  may  run,  are  as  follows : 

(1).  For  the  construction  of  sewers  for  sanitary  and  surface 
drainage  purposes  and  for  sewage  disposal,  thirty  years. 

(2).  For  acquiring  land  for  public  parks  or  public  domain  under 
chapter  forty-five,  thirty  years;  but  no  indebtedness  incurred  for 
public  domain  shall  exceed  one  half  of  one  per  cent  of  the  last 
preceding  assessed  valuation  of  the  city  or  town. 

(3).  For  acquiring  land  for  any  purpose  for  which  a  city  or 
town  is  or  may  hereafter  be  authorized  to  acquire  land,  not  other- 
wise herein  sDecified,  and  for  the  construction  of  buildings  which 
cities  and  towns  are  or  may  hereafter  be  authorized  to  construct, 
including  the  cost  of  original  equipment  and  furnishing,  twenty 
years. 

(4).  For  the  construction  of  additions  to  schoolhouses  or  build- 
ings to  be  used  for  any  municipal  purpose,  including  the  cost  of 
original  equipment  and  furnishings,  where  such  additions  increase 
the  floor  space  of  said  buildings,  twenty  years. 

(5).  For  the  construction  of  bridges  of  stone  or  concrete,  or  of 
iron  superstructure,  twenty  years. 

(6).  For  the  original  construction  of  public  ways  or  the  ex- 
tension or  widening  thereof,  including  land  damages  and  the  cost 
of  pavement  and  sidewalks  laid  at  the  time  of  said  construction, 
ten  years. 

(7).  For  the  construction  of  stone,  block,  brick  or  other  per- 
manent pavement  of  similar  lasting  character,  ten  years. 

(8).  For  macadam  pavement  or  other  road  material  under  speci- 
fications approved  by  the  division  of  highways,  five  years. 


Universitt  of  Nobth  Cabolina 


71 


4l 


*  ■  -* 


i 


(9).  For  the  construction  of  walls  or  dikes  for  the  protection 
of  highways  or  property,  ten  years. 

(10).  For  the  purchase  of  land  for  cemetery  purposes,  ten  years. 

(11).  For  such  part  of  the  cost  of  additional  departmental 
equipment  as  exceeds  twenty-five  cents  per  thousand  dollars  of  the 
preceding  year's  valuation,  five  years. 

(12).  For  the  construction  of  sidewalks  of  brick,  stone,  con- 
crete or  other  material  of  similar  lasting  character,  five  years. 

(13).  For  connecting  dwellings  or  other  buildings  with  common 
sewers,  when  the  cost  is  to  be  assessed  in  whole  or  in  part  on 
the  abutting  property  owners,  five  years. 

(14).  For  the  abatement  of  nuisances  in  order  to  conserve  the 
public  health,  five  years. 

(15).  For  extreme  emergency  appropriations  involving  the 
health  or  safety  of  the  people  or  their  property,  five  years. 

(16).  For  the  payment  of  final  judgments  rendered  after  the 
fixing  of  the  tax  rate  for  the  current  year,  one  year. 

(17).  For  such  other  emergency  appropriations  as  shall  be  ap- 
proved by  a  board  composed  of  the  attorney  general,  the  state 
treasurer  and  the  director,  one  year. 

The  act  relative  to  the  borrowing  of  money  outside  the  debt 
limit  provided  that  a  report  of  the  financial  condition  of  the 
municipality  should  be  made  to  the  legislative  committee  having 
for  consideration  bills  involving  the  finances  of  that  municipality. 
"We  do  not  attempt  to  control  legislation,  but  by  placing  facts  be- 
fore the  Legislature,  we  are  able  to  obtain  uniformity  in  the 
treatment  of  our  cities  and  towns. 

The  necessity  for  the  foregoing  l^slation  was  the  result  of 
careless  financing  on  the  part  of  many  of  our  towns  over  a  period 
of  many  years,  insufficient  study  having  been  given  by  them  to  the 
needs  of  the  future.  The  demand  for  service  at  public  expense 
was  increasing  at  an  alarming  rate,  luxuries  of  yesterday  became 
necessities  of  today,  with  the  result  that  our  debt  was,  in  many 
cases,  becoming  an  actual  burden. 

Formerly  every  opportunity  was  given  to  the  government  in 
power  to  perpetuate  itself  by  maintaining  a  relatively  low  tax  rate, 
and  whenever  additional  money  was  needed,  it  was  obtained  by 
means  of  a  loan.  Under  our  present  laws,  every  municipality 
must  meet  its  maintenance  and  operating  costs  by  revenue.  The 
use  of  loan  money  is  restricted  to  certain  purposes.  The  tempta- 
tion to  inadequately  meet  the  sinking  fund  requirements  no  longer 
exists.     If  we  are  desirous  of  having  service  at  public  expense, 


ip 


m 


fl 


li> 


72  Attainable  Standards  in  Municipal  Pbogbams 

we  know  that  it  will  be  reflected  in  the  tax  rate,  and  in  my  opinion 
there  will  be  far  better  governement  when  the  people  themselves 
realize  that  whatever  they  demand  in  a  given  year  by  way  of 
service  automatically  comes  back  to  them  in  the  tax  bill  of  that 
year. 

Since  the  1913  legislation  became  effective,  we  find  that  the 
ratio  of  funded  or  fixed  debt  to  assessed  valuation  has  constantly 
decreased,  the  actual  net  funded  or  fixed  debt  for  all  municipali- 
ties in  the  commonwealth  on  December  31,  1920,  being  more  than 
$5,500,000  less  than  it  was  on  December  31,  1916.  This  is  not 
due  wholly  to  war  conditions,  since  the  increased  cost  of  new  work 
in  a  way  offsets  the  postponed  work  which  would  normally  have 
been  done  during  the  war  period;  in  other  words,  the  policy 
adopted  some  eight  years  ago  has  placed  all  of  our  municipalities 
in  a  far  better  position  to  cope  with  the  serious  financial  con- 
dition following  the  World  War. 

The  Legislature  in  1920  added  to  our  duties  somewhat  by  pass- 
ing an  act  which  requires  the  auditing  of  the  accounts  of  all  cities 
and  towns  hj  the  division  of  accounts,  or  by  accountants   ap- 
proved by  them,  as  often  as  once  in  three  years.     Many  desired 
this  law  to  be  extended  so  as  to  cover  the  installation  of  an  ac- 
counting system  as  well,  but  I  could  not  favor  such  a  provision 
at  the  present  time.     It  seems  fair  enough  to  make  the  audit 
compulsory,  but  if  the  accounts  are  to  be  kept  on  certain  definite 
lines,  it  will  be  necessary  to  have  local  support.     You  cannot 
mold  municipal  accountants,  but  you  can  educate  them.    In  time 
we  expect  to  have  every  city  and  town  keeping  the  same  general 
system  of  accounts,  but  if  such  uniform  system  is  to  be  successful, 
we  must  first  convince  the  citizens  of  its  value  and  make  clear 
why  three  hundred  years  of  tradition  must  be  abandoned.     As 
soon  as  a  majority  of  the  citizens  appreciate  the  real  value  of  a 
proper  system  of  accounts,  I  feel  confident  that  requests  will  be 
received  for  the  installation  of  such  systems  and,  moreover,  that 
they  will  be  received  quite  as  fast  as  we  are  able  to  do  the  work. 

The  methods  adopted  by  us  in  carrying  on  the  work  in  Massa- 
chusetts have  met  with  the  approval  of  a  majority  of  our  citizens, 
and  officials  of  the  several  municipalities  find  that  they  can  ob- 
tain assistance  from  a  central  office  which  has  experience  in  solv- 
ing many  of  their  problems.  The  results  cybtained  in  our  State 
have  proved  so  eminently  satisfactory  that  I  would  recommend 
state  supervision  of  accounts,  such  as  Massachusetts  has,  to  other 
states — ^if  not  for  adoption  in  its  entirety,  at  least  for  a  trial  in 
part. 


V* 


University  of  N'obth  Carolina  73 

BUDGET  MAKING  AND  THE  CITIZENS'  INTEREST 
IN  NOETH  CABOLINA  JMTJNICIPALITIES 

Lionel   Weil,   Chairman   JTinance   Committee,    Goldsboro* 

In  order  that  the  various  administrations  of  the  cities  and 
towns  throughout  I^orth  Carolina  may  attain  their  fullest  meas- 
ure of  success,  three  important  factors  are  necessary — ^good  men, 
good  laws  and  a  continuing  interest  by  the  people. 

The  value  of  public  interest  is  not  only  important,  but,  to 
a  large  extent,  determines  whether  we  shall  have  good  men  and 
^ood  laws.  An  indifferent  electorate  invariably  begets  a  medi- 
ocre administration.  The  best  results  have  always  come  when 
our  people  are  keenly  aroused  to  a  proper  appreciation  of  our 
civic  problems. 

In  the  range  of  municipal  problems,  there  is  no  event  more 
important,  nor  one  that  should  engage  public  attention  to  a 
greater  degree  than  a  consideration  of  the  budget. 

What  the  Budget  is  and  Wbat  it  Does 

Simply  stated,  the  city  budget  is  the  financial  plan  and  guide 
for  the  yearly  conduct  of  its  business.  It  embodies  the  detailed 
estimate  of  expense  and  revenue  necessary  for  the  jjroper  opera- 
tion of  its  government,  systematically  arranged  according  to 
its  various  departments,  with  a  comparative  statement  of  the 
previous  year's  transactions. 

It  enables  the  city  to  accurately  determine  its  financial  pro- 
gram and  shape  its  policies  a  year  in  advance,  thereby  giving 
the  public  a  deeper  insight  and  a  better  understanding  of  what 
services  are  planned  and  what  financial  burdens  they  are 
expected  to  share. 

Experience  has  shown,  by  thus  planning  ahead  and  taking  into 
consideration  the  various  requirements  of  each  department 
according  to  its  relative  importance,  that  money  has  not  only 
been  saved,  but  that  a  higher  standard  of  service  has  been  secured. 

In  the  light  of  the  above  statement,  as  a  proper  safeguard 
and  good  business,  the  budget  becomes  of  equal  importance  to 
the  small  town  and  larger  city. 


^Special  thanks  are  extended  to  Mr.  Weil,  not  only  for  this  pai>er  with  its  valuable 
illustrations,  but  for  his  special     co^peraticm  in  maldng  the  Conference  possible. 


74  Attainable  Standards  in  Municipal  Pkoqrams 

Who  Should  Prepare  the  Budget 

The  first  step  necessary  to  the  preparation  of  a  successful 
budget  is  executive  authority.  In  the  city  manager  form  of 
govemmeni;,  this  duty  naturally  falls  on  the  City  Manager, 
assisted  by  the  chief  financial  officer.  In  the  commissioner  form, 
and  federal  plan  of  government,  where  the  commission  or  mayor 
appoints  all  department  heads,  who  are  directly  responsible  to 
the  commission  or  mayor,  it  should  be  their  duty  to  secure  the 
proper  estimates  from  the  various  departments.  In  towns  or 
cities  where  government  by  committees  continues  to  flourish, 
and  such  centralization  does  not  exist,  it  is  desirable  that  the 
mayor  or  municipality  call  together  the  various  representatives 
of  the  several  departments,  and  lay  before  them  the  city's  current 
revenues  and  ascertain  what  the  requirements  for  their  respec- 
tive departments  would  be  for  the  current  year.  Here,  by  a 
committee  of  the  whole,  the  public  need  could  be  correlated  and 
the  absolute  necessities  approved. 

The  entire  estimates,  with  supporting  data,  could  thus  be 
prepared  for  presentation  to  the  board  of  alderman  or  council. 
The  preparation  of  the  budget  estimates,  outside  the  Council 
itself,  and  their  final  approval  or  disapproval  would  place  the 
responsibility  of  government  where  it  actually  belongs. 

Determining  Belative  Tallies 

In  the  making  of  a  budget,  one  of  the  real  problems  is  to 
ascertain  the  relative  amounts  needed  for  each  department. 
Since  the  fundamental  prerequisite  to  the  existence  of  society  in 
any  form  is  the  preservation  of  law  and  order  and  the  protection 
of  life  and  property,  it  would  seem  that  the  first  care  of  the 
city  would  be  adequate  provision  for  public  safety.  This  would 
include  the  work  of  the  police,  fire  and  public  health  depart- 
ments and  they  should  therefore  be  the  first  to  be  put  on  an 
adequate  basis.  The  necessary  condition  to  accomplish  this  end 
would  be  the  provision  of  such  public  improvements  as  the 
above — lighted  streets,  water  and  sewerage  and  the  machinery 
for  fire-fighting. 

After  these  elemental  needs  are  taken  care  of,  the  undertaking 
of  most  consequence  is  public  education,  since  popular  govern- 
ment is  dependent  for  its  continuance  on  an  educated  citizenship. 
In  view  of  the  fact  that  our  city  schools  are  taken  care  of,  in 
most  of  our  communities,  by  a  separate  and  distinct  corporation 
this  subject  will  not  constitute  part  of  the  present  discussion.    In 


University  of  I^obth  Cabolina 


76 


this  connection,  however,  the  support  and  encouragement  of  the 
municipality  should  be  given  to  its  Public  Library. 

Next  in  order,  come  the  numerous  and  various  activities  of 
social  welfare,  relief  of  the  poor,  places  of  recreation  and  play- 
ground facilities. 

Expenditures 

It  is  a  prevailing  practice  for  a  city  to  first  estimate  the  essen- 
tial expenditures  for  the  year  and  then  provide  revenue  for 
meeting  them.  The  expenditures  of  the  average  municipality 
in  North  Carolina  may  be  reasonably  classified  under  the  follow- 
ing departments:  1.  Administration;  2.  Police;  3.  Fire;  4.  Health 
and  Sanitation;  5.  Streets;  6.  Sewerage;  7.  Water;  £•.  Lighting; 
9.  Education  schools  and  library;  10.  Parks  and  playgrounds; 
11.  General  expense  and  contingencies;  12.  Sinking  fund  and 
interest. 

In  order  that  any  change  in  the  assets  of  the  city  may  be 
properly  reflected  in  its  financial  statement,  and  that  the  actual 
operating  expenses  may  be  known,  it  is  necessary  to  separate  the 
expenditures  of  these  various  departments  into  two  classifica- 
tions, Expense  and  Capital  Outlay.  Expense  comprises  all  items 
of  expenditure  necessarily  incurred  for  current  administration. 
Capital  outlay  comprises  expenditures  of  every  character  made 
from  the  general  fund  which  increases  the  assets  of  the  corpo- 
ration, same  >being  popularly  called  "permanent  improvements." 

Sonrces  of  Bevenne 

For  clearness  and  convenience,  revenue  is  divided  into  two 
classifications:  1st.  Revenue  for  the  general  fund,  which  includes 
current  revenue,  and  2nd.  Revenue  for  the  sinking  fund,  which 
includes  revenue  for  interest  and  the  payment  of  the  principal 
of  bonds  at  maturity.  The  principal  sources  of  revenue  for  the 
general  fund  are  the  taxes  on  real  estate  and  personal  property, 
including  poll  taxes,  special  licenses  and  fees,  water  rentals, 
electric  light  receipts  and  costs  from  the  City  Recorder's  or 
Mayor's  Court. 

In  many  of  our  towns  in  North  Carolina,  the  sources  of 
revenue  for  the  general  fund  had  to  be  supplemented  last  year 
by  the  proceeds  of  a  funding  bond  issue,  necessitated  by  the 
Revaluation  Act,  which  limited  the  increases  in  our  revenue — 
that  could  be  raised  by  taxation — to  10%  of  the  previous  year's 
revenue,  whereas,  as  an  actual  fact,  considerable  more  revenue 
was  needed,  duq  to  the  excessively  increased  cost  of  labor  and 
material.     Our  recent  Legislature  of  1921,  seeing  the  financial 


>- 


76 


Attainable  Standards  in  Municipal  Pbograms 


Univeesity  op  ITobth  Carolina 


77 


"i 


burden  imposed  on  our  various  cities  and  towns,  endeavored  to 
come  to  their  rescue  by  amending  the  Municipal  Finance  Act, 
so  as  to  give  the  suffering  municipalities  a  sufficient  rate  under 
which  to  operate.     The  sad  story  of  how  the  Senate  engrossing 
clerk  failed  to  record  in  the  Journal  the  passage  of  this  act,  and 
its  consequent  invalidation  is  all  too  familiar   and  distressing 
to  many  of  us.     Once  again,  a  great  number  of  our  municipal- 
ities  are   subject   to   severe   financial   strain,    and,   in   order  to 
protect  their  credit,  forced  to  adopt  the  pernicious  practice  of 
issuing  funding  bonds  for  current  expenses — passing  on  to  next 
year's  tax-payer  the  cost  of  benefits  which  are  already  used  up 
and  gone.     The  recent  low  sale  of  such  securities,  compared  with 
the  cities  of  other  states  unfortunately  reflect  our  standing  in 
the   financial   world.     This  belated   and  urgently  needed   relief 
will  finally  come  when   the  Governor,   in  his  wisdom,  decides 
the  right  moment  is  at  hand  for  calling  the  Legislature  together. 
The  principal  sources  of  revenue  for  the  sinking  fund  are  the 
taxes    on    real    and    personal    property,    including    poll    taxes, 
improvement  assessments  levied  on  abutting  property,  and  inter- 
est from  the  investment  of  the  sinking  fund. 

Appropriation  Ordinance 

In  order  to  make  effective  the  various  proposals  in  the  budget, 
an  appropriation  ordinance  should  be  drafted  and  passed  by 
the  council.  The  budget  then  becomes  operative  as  the  admin- 
istrations guide  for  the  current  year.  To  insure  its  effectiveness 
and  to  make  it  thoroughly  binding,  every  contract  for  the 
(purchase  of  supplies,  material  and  equipment  should  become 
valid  only  when  the  city  auditor  or  comptroller  certifies  that 
funds  are  available  and  the  contract  signed  by  the  chief  execu- 
tive officer  under  authority  of  the  governing  body,  and  further, 
that  no  expenditures  for  salary  and  labor  should  be  made  by 
the  chief  executive  officer  until  the  city  auditor  certifies  that 
funds  are  available.  A  monthly  balance  sheet  should  be  presented 
to  the  council  so  that  a  proper  check  as  to  its  operations  can 
be  had,  and,  at  all  times  the  unexpended  balance  may  be  shown 
in  each  department. 

Some  Basic  Cliarter  Proyisions 

A  few  of  the  more  important  provisions  of  the  State  Municipal 
Finance  Act  and  the  Model  City  Charter  are  herewith  sub- 
mitted.   These  should  form  a  correct  guide  for  budget  procedure. 

The  fiscal  year  of  the  city  shall  be  from  June  1st  to  May  31st,  or 
from  September  1st  to  August  31st,  inclusive;  and  not  earlier  than 


U^ 


one  month  before,  nor  later  than  one  month  after  the  beginning 
of  each  fiscal  year,  the  chief  executive  of  the  municipality  shaU 
prepare  and  submit  to  the  council,  an  annual  budget  far  the 
ensuing  fiscal  year  based  upon  detailed  estimates  furnished  by 
the  several  departments  and  other  divisions  of  the  city  govern- 
ment, according  to  a  classification  as  nearly  uniform  as  possible. 
The  budget  shall  present  the  following  information: 

(a)  An  itemized  statement  of  the  appropriations  recom- 
mended by  the  chief  executive  of  the  municipality  for  current 
expenses  and  for  permanent  improvements  for  each  department 
and  each  division  thereof  for  the  ensuing  fiscal  year,  with  com- 
parative statements,  in  parallel  columns,  of  the  appropriations 
and  expenditures  for  the  current  and  next  preceding  fiscal  year, 
and  the  increases  or  decreases  in  the  appropriations  recommended. 

(b)  An  itemized  statement  of  the  taxes  required  and  of  the 
estimated  revenues  of  the  city  for  all  other  sources  for  the 
ensuing  fiscal  year,  with  comparative  statements,  in  parallel 
columns,  of  the  taxes  and  other  revenues  for  the  current  and 
next  preceding  fiscal  year,  and  of  the  increases  or  decreases 
estimated  or  proposed. 

(c)  A  statement  of  the  financial  condition  of  the  municipality. 

(d)  A  copy  of  the  budget  shall  be  filed  in  the  office  of 
the  City  Clerk  for  public  inspection  not  later  than  ten  days 
before  its  adoption  by  the  governing  body,  and  a  public  hearing 
shall  be  given  thereon  by  the  governing  body  before  the  adoption 
of  the  budget,  notice  of  which  hearing  shall  be  published. 

(e)  Such  other  information  as  may  be  required  by  the  City 
Council.  Such  budgets,  when  adopted  by  the  Council  cannot 
be  changed  except  at  a  regular  meeting,  and  upon  a  two-thirds 
vote  of  the  whole  Council. 

The  foregoing  sections  relating  to  budget  procedure  are  in 
accordance  with  the  best  modern  thought  and  practice  on  the 
subject,  but  no  instrument,  however  well  conceived  and  executed, 
can  be  thoroughly  successful  unless  it  is  understood  and  approved 
by  an  enlightened  public. 

Beaching  the  Public 

The  budget  can,  and  should,  be  one  of  the  chief  means  of 
arousing  public  interest  and  extending  public  knowledge.  Figures 
are  cold  facts  to  the  majority  of  people — ordinarily,  they  are 


i 


7S  Attainable  Standards  in  Municipal  Pbograms 

as  dry  as  dust.  Every  legitimate  effort,  therefore,  should  be 
made  to  present  the  proposed  appropriations,  with  their  support- 
ing data,  so  as  to  attract  the  average  citizen  by  a  joint  appeal 
to  his  common  sense  and  imagination,  first  gaining  his  under- 
standing and  then  securing  his  confidence.  Copies  of  the  proposed 
budget  should  be  printed  in  circular  form  and  distributed.  Sub- 
divided circles,  graphically  showing  the  relative  expenditures  and 
the  comparative  percentages  for  each  department,  also  sources  of 
revenue,  their  amounts  and  the  comparative  percentages  of  these 
sources,  will  secure  a  greater  clearness  and  better  understanding. 

The  budget  should  also  be  printed  in  story  form  for  the  local 
newspapers  showing,  by  departments,  what  additional  service  can 
be  accomplished  by  each  appropriation.  A  suggested  caption 
might  be :  What  it  Costs  to  Run  City  Hall— Here  are  the  Figures 
to  Show  Just  What  Your  Money  Does. 

axJ^f  following  items  will  serve  as  a  helpful  illustration :  Under 
Health  and  Sanitation,"  "This  year's  budget  contains  $10,000 
increase  for  the  eradication  of  the  mosquito.  It  is  confidently 
predicted  that,  with  the  disappearance  of  the  mosquito,  malaria 
will  be  arrested  and  the  health  and  economic  efficiency  of  500 
individuals  will  be  restored  to  their  normal  well-being,  and 
returned  to  their  usual  avocations." 

Motorization  of  the  Fire  Department.  "The  proposed  purchase 
of  a  motor  truck  for  $6500  not  only  improves  the  efficiency 
of  our  Fire  Department  in  enabling  it  to  extinguish  fires  in 
their  incipiency,  but  will  secure  5%  reduction  in  our  insurance 
rates,  and,  in  two  years,  our  citizens  will  save  enough  to  offset 
the  original  cost  of  this  truck ! 

And,  finally,  under  the  headline.  Service  vs.  Cost,  the  following 
argument  might  be  justified  in  any  well-governed  and  rapidly 
developing  municipality  in  [NTorth  Carolina. 

Service  vs.  Cost 

These  various  improvements  have  necessarily  been  added  with 
an  increase  m  the  tax  rate.  But  if  one  can  in  any  way  interpret 
the  desire  of  the  average  citizen,  we  believe  he  would  be  unwilling 
to  revert  to  the  old  condition,  poor  service  and  low  taxes.  A  low 
tax  rate,  accompanied  by  very  little  resulting  benefit,  is  seldom 
appreciated. 

The  following  thought  should  illustrate  this  idea:  The  recol- 
lection of  a  low  price  for  a  cheap  article  is  soon  forgotten,  but 
the  poor  service  it  has  rendered  is  long  remembered.    Our  concep- 


Univeesitt  of  North  Carolina 


79 


?.^. 


tion  of  city  government  is  rapidly  undergoing  a  change.  In  by- 
gone years,  the  prevailing  policy  of  some  administrations  has 
been  to  see  how  cheaply  the  government  could  be  administered. 
The  standard  of  living  has  so  greatly  changed  that  the  luxuries 
of  yesterday  have  become  the  necessities  of  today.  So  our  people 
have  come  to  give  first  consideration  to  the  character  of  service 
and  efficiency  rendered  rather  than  low  cost  operations. 

The  budget,  outlining  the  city's  plan  of  action  for  the  entire 
year,  carries  with  it  a  most  vital  message.  An  earnest  endeavor 
should  therefore  be  made  to  secure  the  fullest  publicity  in  its 
consideration.  The  public  should  be  invited  to  participate  in  a 
full  discussion  of  its  provisions  at  a  meeting  of  the  Council 
called  for  this  purpose,  to  the  end  that  when  the  budget  is 
finally  adopted,  the  administration  will  have  the  sympathetic 
understanding  and  the  harmonious  cooperation  of  an  interested 
citizenship. 

The  subdivided  circles  shown  in  the  four  diagrams  graphically 
illustrate  relative  amounts  and  percentages  as  adopted  in  a  budget 
of  a  ITorth  Carolina  town  for  thirteen  months,  ending  May 
dl,  1921.    These  include  the  following: 

MAYOR  ELDBIDGE  OX  EMERGENCY  FUNDS 

At  the  first  meeting  devoted  to  municipal  finance  Mayor  Eld- 
ridge  presented  a  very  forceful  and  convincing  address  on  the 
subject :  "Is  it  safe  to  take  liberties  with  laws  relating  to  municipal 
taxation  in  anticipation  of  curative  legislation?"  Mr.  Eldridge 
reviewed  the  state  emergencies  of  1921,  presented  specific  evidence 
of  his  argument,  and  concluded  that  cities  should  not  go  beyond  the 
actual  present  regulations.  Without  censuring  any  city  which 
felt  it  necessary  to  take  steps  for  which  it  would  then  ask  legisla- 
tive approval  Mr.  Eldridge  thought  that  the  wisest  plan,  both 
for  the  good  of  the  city  in  question  and  for  the  safety  of  municipal 
finance  in  ITorth  Carolina  would  be  to  suffer  limitations  rather 
than  take  the  liberties  described. 


> 


80 


Attainable  Standabds  ur  Municipal  Pboobams 


Total  Estimated  Expenditures 

I^AY  1.1920 TO  May3I.I92I 


Grand  Total  Appropriation  *303.52&.38 


(1)  Total  estimated  expenditures  May  1,  1920,  to  May  31,  1921, 
(13  months  instead  of  twelve  months  on  account  of  change  in 
fiscal  year). 


Univebsity  of  IN'orth  Carolina 


81 


»      $ 


.^ 


Health  and  Sanitation  Department 

Appropriation-May  I.I920toMay  31.1921  •36,30500 


Distribution  of  Estimated  Expenditures 
For  13  Months 
(2)  Total  estimated  revenue,  Health  1920. 


6 


82 


Attainable  Standards  in  Municipal  Pkogeams 


University  of  JN'orth  Carolina 


83 


Total  Estimated  Revenuc 

Taxable  Year  \920 


^ 


to\ 


Grand  Total  •303,528.98 

(4)    Distribution   estimated  expenditures,  Administration    (13 
months). 


INTERPBETATIOIC  OF  LOCAL  GOYEKNMENT 
IN  TEKMS  OF  ACCOUNTING 

Baxter  Durham,  State  Auditor,  North  Carolina 

**To  be  helpful,  criticism  must  be  constructive,"  and  in  the  spirit 
of  this  quotation  I  approach  the  subject  assigned  to  me. 

"Approach"  is  the  correct  word,  for  no  man  can  hope  to  cover 
this  subject  in  an  hour,  or  a  day.  We  must  come  to  it  as  students, 
reason  together,  dig  in,  and  the  "pay  dirt"  that  we  throw  out 
will  be  facts  upon  which  we  can  intelligently  build. 

The  County  is  the  unit  of  self-government,  and  the  Board  of 
County  Commissioners  is  the  governing  body.  It  would,  therefore, 
seem  that  the  general  law  directing  the  Commissioners  to  employ 
accountants  for  an  audit  of  their  County,  and  the  installation  of 
an  accounting  system,  would  be  a  correct  "interpretation  of  local 
government  in  terms  of  the  County." 

But  when  we  remember  that  there  are  one  hundred  counties  in 
INTorth  Carolina,  that  each  county  has  problems  of  its  own,  that 
they  are  all  bonded  together  by  various  state  agencies,  that  they 
are  all  dependent  upon  each  other,  then  we  must  conclude  that 
the  local  government  we  think  of,  in  terms  of  accounting,  is 
the  State. 

This  view  was  taken  by  agreement  of  the  representatives  from 
every  county  in  ITorth  Carolina  in  the  1921  Session  of  the 
Legislature,  when  after  careful  consideration  they  wrote  into  the 
laws  of  the  State,  Chapter  236,  Public  Laws  of  1921.  The  first 
section  of  that  Chapter  reads  as  follows : 

"Section  1.  That  it  shall  be  the  duty  of  the  State 
Auditor  to  cause  to  be  examined  at  least  once  a  year,  and 
oftener  if  in  the  judgment  of  the  State  Auditor  conditions 
require,  all  counties  and  county  officers  receiving  or  dis- 
bursing public  funds,  and  that  such  State  Auditor  be 
and  he  is  hereby  given  full  power  to  examine  all  accounts 
and  all  official  affairs  of  every  county  office  and  officer 
receiving  or  disbursing  public  funds." 

This  law  provides  two  things : 

That  every  county  in  the  State  shall  be  audited,  and  a  proper 
system  of  accounting  insstalled; 

That  this  work  shall  be  done  by  a  central  agency — the  State 
Auditor. 

In  both  propositions  I  most  heartily  concur. 


i\ 


i 


i 


\ 


I 


*   \i 


84  Attainable  Standards  in  Municipal  Programs 

Why  an  audit?  Have  not  we  builded  a  brave  and  beautiful 
state  through  all  these  years  of  struggle  without  an  audit  ?  We 
have.    Then  let's  have  an  audit,  and  quit  struggling. 

If  we  are  to  get  a  correct  vision  of  this,  we  must  look  upon 
the  State  as  a  great  corporation,  established  for  the  purpose  of 
conducting  the  business  of  the  people— the  counties  as  branch 
corporations,  established  for  the  purpose  of  more  conveniently 
conducting  this  business.  Let  me  give  you  a  picture  of  the 
establishment  of  one  of  these  branch  corporations : 

A  petition  is  presented  to  the  parent  corporation,  which  is  the 
State,  setting  forth  the  fact  that  there  are  in  a  certain  community 
three  or  four  thousand  people,  that  by  reason  of  their  location, 
are  greatly  inconvenienced  in  handling  and  attending  to  the 
business  of  the  people.  A  bill  is  introduced  and  made  a  law,  estab- 
lishing the  named  corporation,  and  the  law  usually  provides 
that  the  President  of  the  parent  corporation— the  Governor  of 
the  State— shall  name  the  President  and  the  balance  of  the 
Board  of  Directors  and  the  officers  of  the  new  corporation,  and 
they  serve  until  the  next  general  election.  Then  by  selection 
the  stockholders  elect  a  Board  of  Directors  and  the  officers.  The 
total  capital  stock  of  the  parent  corporation,  stated  in  taxable 
values,  is  approximately  three  billion  dollars,  which  gives  an 
average  capital  stock  to  the  one  hundred  branch  corporations, 
stated  in  taxable  values,  of  thirty  million  dollars. 

When  I  tell  you  that  this  average  capital  stock  of  a  county  is 
larger  than  the  capital  stock  of  any  private  corporation,  incorpo- 
rated under  the  laws  of  [N'orth  Carolina,  and  exceeded  by  only 
three  or  four  foreign  corporations  doing  business  within  the  State, 
then  you  have  some  idea  of  the  bigness  of  this  business  that  we 
call  government. 

How  do  we  conduct  this  business?  First,  we  elect  a  Board 
of  County  Commissioners,  command  them  to  be  present  at  the 
courthouse  on  the  first  Monday  in  December  and  June,  allow 
them  to  adjourn  from  day  to  day  until  they  have  transacted  all 
business  brought  before  them,  and  for  this  we  pay  them  the  mag- 
nificent per  diem  of  three  or  four  or  ^Ye  dollars,  and  mileage.  We 
allow  them  to  meet  without  pay,  whenever  they  call  a  meeting 
and  two  or  four  years  later,  without  thought  of  their  success  or 
failure,  turn  them  out,  because  we  cannot  violate  what  to  some 
IS  the  sacred  principle  of  "rotation  in  office." 

If  the  business  is  not  conducted  properly,  is  the  fault  theirs? 
Must  the  blame  be  placed  on  their  shoulders?  Certainly  not 
Ours  is  the  fault,  and  we  must  carry  the  blame. 


University  of  ITorth  Carolina 


85 


> 


V 


•  ■«' 


<  ■• 


i 


Do  the  stockholders  treat  our  directors  as  they  should?  A  new 
board  is  elected,  and  they  come  into  office  without  knowledge  of 
the  financial  affairs  of  the  county,  but  after  a  careful  study  of 
the  situation  they  call  us  together  and  mention  this  item : 

"We  find,  gentlemen,  that  we  have  a  county  treasurer, 
and  we  are  paying  him  $1200,  $1800,  or  $2000  a  year, 
as  the  case  may  be.  We  also  find  that  there  are  one  or 
two  Banks  at  the  county  seat  that  are  willing  to  act 
as  Treasurer  for  the  privilege  of  having  the  county's  funds 
on  deposit.     What  will  you  do  about  this,  gentlemen?" 

One  stockholder  moves  that  the  suggestion  of  the  directors  be 
adopted,  the  office  of  the  treasurer  abolished,  and  a  bank  allowed 
to  act  as  treasurer.  The  motion  meets  with  a  second,  and  the 
storm  breaks.  Friends  of  the  treasurer  rush  to  his  defense,  taking 
the  motion  and  suggestion  as  a  personal  attack.  They  declare  that 
he  is  one  of  the  best  men  in  the  county,  has  been  a  faithful 
and  efficient  officer,  and  therefore,  the  office  should  not  be  abolished. 
The  facts  they  state  about  him  may  all  be  true,  but  this  does 
not  mean  that  the  other  fact  is  false;  namely,  that  the  directors 
are  right,  that  the  office  should  be  abolished  and  the  county  saved 
$1£00  or  $2000  a  year. 

Suppose  the  motion  is  carried,  and  the  office  abolished,  at 
the  next  general  election  the  directors  are  not  reelected.  Or, 
suppose  the  motion  is  lost,  the  directors  may  meet  with  the  same 
fate;  the  reason  assigned  in  both  cases  is  the  same,  that  they 
had  it  "in"  for  the  County  Treasurer,  and  made  a  personal  attack 
on  him,  the  stockholders  losing  sight  of  the  fact  that  the  Commis- 
sioners, or  directors,  are  trying  their  best  to  advise  the  stock- 
holders to  conduct  their  business  on  business  principles. 

As  to  the  selection  of  officers :  Are  they  selected  with  an  idea 
of  their  qualifications  for  the  job  in  mind?  Do  they  elect  a 
Register  of  Deeds  because  he  is  a  good  clerical  man,  trained  in 
the  work  he  is  to  do?  Do  they  elect  a  sheriff  because  he  is  a 
big,  strong  man,  able  to  execute  the  law,  protect  the  public,  and 
collect  the  tax?  Do  they  elect  a  Clerk  of  Court  because  he  is 
familiar  with  the  laws  of  the  State,  a  good  business  man,  and 
trained  in  his  duties?  In  a  great  majority  of  the  cases  we  must 
answer  "!N'o." 

Are  there  private  corporations,  whose  business  is  conducted  as 
IS  the  public  business?  Yes,  indeed,  but  their  names  are  carved 
deep  in  the  records  of  the  bankruptcy  courts  and  some  of  their 
directors  and  officers  are  "doing  time." 


n 


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86 


Attainable  Standards  in  Municipal  Fboobams 


University  of  N'orth  Carolina 


87 


|1 


I  say  to  you  very  frankly  that  there  are  few  counties  in  this 
State  that  know  their  true  financial  condition.  A  great  many 
do  not  know  their  bonded  indebtedness;  who  holds  the  bonds, 
nor  when  they  are  due;  when  the  interest  is  due,  when  they  are 
to  be  paid,  or  how. 

Few  counties  know  the  number  of  acres  of  land  within  their 
borders,  nor  the  valuation  of  the  same,  neither  do  they  know  the 
number  of  town  lots.  I  know  that  this  is  true,  for  the  reports 
coming  into  my  office  every  year  vary,  and  in  some  instances 
greatly,  as  to  the  number  of  acres  and  number  of  town  lots. 

Few  counties  have  a  control  set  of  books,  through  which  all 
financial  items  pass.  Few  know  what  it  costs  them  to  conduct  the 
business,  or  whether  the  price  is  high  or  low.  Few  know  whether 
they  buy  at  the  right  price  when  they  purchase. 

Let  me  tell  you  an  incident:  A  certain  institution  was  going 
to  install  a  heating  plant,  and  they  asked  for  bids.  A  day  was 
set  for  opening  the  bids.  On  the  afternoon  before,  there  were 
ten  bidders  on  the  field.  Late  in  the  afternoon  a  representative 
of  the  State,  trained  in  his  profession,  came  in  town  and  offered 
his  services  to  the  Board  of  Directors.  The  next  morning  only 
three  bids  were  submitted,  and  the  successful  bid  was  cut  $3,000. 
This  could  easily  have  happened  in  a  county,  and  illustrates  what 
I  have  to  say  in  regard  to  buying. 

These  are  good  and  sufficient  reasons  for  an  audit,  but  to  more 
clearly  put  it  before  you,  let  me  give  you  some  more  facts. 

In  1919,  after  several  years  of  intense  persuasion,  the  Legis- 
lature allowed  the  State  Auditor  to  spend  $5000  annually,  to 
employ  a  Traveling  Auditor,  and  pay  his  expenses.  The  work 
fell  to  me,  and  I  went  to  about  twenty  counties  and  collected 
about  $20,000  that  in  all  probability  would  never  have  found  its 
way  into  the  State  Treasury.  Did  this  indicate  that  there  was 
any  dishonesty  with  the  county  officials?  I^ot  at  all.  Let  me 
say  in  this  connection  that  I  have  not  seen  in  any  of  the  audits  that 
have  been  made,  any  evidence  whatever  of  dishonesty.  An  audit 
is  not  made  for  the  purpose  of  disclosing  dishonesty;  it  will  be 
disclosed  if  there,  but  the  basic  principle  of  the  audit  is  to  find 
the  facts,  and  so  present  them  that  they  can  be  understood  and 
their  meaning  made  clear. 

Another  case:  We  made  an  audit  of  a  certain  county,  being 
told  when  we  went  there  that  the  Sheriff  was  short  about  $15,000. 
The  facts  in  this  case  were  that  the  Register  of  Deeds  had  died, 
and  there  was  not  a  man  in  the  county  that  knew  the  condition 
of  the  county.     They  were  building  a  new  courthouse,  and  the  va- 


'•  M# 


rious  county  offices  were  located  at  different  places  in  the  county. 
We  found  a  box  of  county  records  in  an  old  barn  with  vines 
growing  through  the  box.  We  found  a  bonded  indebtedness,  and 
a  tax  levy  to  take  care  of  the  bonds,  but  as  the  tax  was  collected, 
it  was  put  in  the  general  county  fund  and  used  to  pay  any 
expenses  of  the  county.  We  found  that  instead  of  the  sheriff 
being  short,  the  various  county  funds  were  short,  and  the  money 
had  never  come  into  the  hands  of  the  sheriff,  nor  did  he  know 
that  he  was  even  charged  with  certain  items.  That  county  today 
has  a  good  accounting  system,  and  it  is  being  well  kept. 

In  another  county  we  audited,  we  had  to  make  this  statement 
to  the  board  of  commissioners : 

The  sheriff  of  your  county,  who,  prior  to  a  certain  date, 
acted  in  the  capacity  of  both  sheriff  and  treasurer,  was 
able  to  furnish  us  with  no  records  showing  receipts  and 
disbursements,  except  the  recorded  sheriff's  settlements 
for  the  years  1917  and  1918,  which  purported  to  account 
for  the  tax  collections  for  these  years  only.  The  receipts 
from  other  sources  and  the  disposition  of  same  for 
county  purposes  had  not  been  recorded,  or  if  recorded, 
the  records  were  not  available. 

We  found  in  this  same  county  that  the  Commissioners  had 
allowed  the  sheriff  commission  on  the  gross  charge  against  him, 
before  any  errors,  insolvents,  or  land  sales  were  deducted,  and 
even  before  the  state  tax  was  deducted,  and  of  course  the  State 
had  allowed  the  sheriff  {commission  on  the  amount  he  paid 
the  State. 

We  found  in  another  county  that  the  sheriff  was  behind  $10,000 
in  the  1919  settlement,  and  an  agreement  between  the  mayor 
of  the  town  in  which  the  county  seat  is  located  and  the  county 
superintendent  of  public  instruction  to  divide  the  fines  collected 
between  the  school  fund  and  the  town — an  agreement  that  the 
State  Legislature  does  not  have  the  power  to  make,  because 
the  Constitution  distinctly  says  that  all  such  funds  shall  be 
placed  to  the  credit  of  the  school  fund. 

In  another  county  we  found  that  the  sheriff  had  collected 
about  $2000  in  taxes,  that  was  put  on  the  books  after  the  reports 
had  been  sent  to  the  State  Auditor's  office.  He  had  paid  all  the 
State  had  demanded,  and  yet  he  was  due  the  State  $2000  and 
did  not  know  it.  The  register  of  deeds  in  this  case  had  failed 
to  send  us  a  charge  against  the  sheriff  for  this  amount. 


88. 


Attainable  Standards  in  Municipal  Programs 


University  of  North  Carolina 


119 


I  % 


In  a  great  many  counties  we  find  that  the  tax  levied  to  take 
care  of  bond  issues  is  not  set  aside,  as  the  law  directs,  into 
a  sinking  fund,  but  is  put  into  the  general  fund  and  spent  for 
any  expenses  of  the  county. 

We  found  in  another  county  that  for  four  years  the  county 
commissioners  had  not  had  a  settlement  with  the  sheriff.  Oh, 
yes,  he  has  paid  so  far  as  they  could  tell,  all  that  he  has 
collected,  but  the  tax  receipts  were  left  with  him,  and  of  course 
he  could  collect  as  much  tax  as  he  wanted  to  and  never  account 
for  it.  A  tax  receipt  is  a  cash  charge  against  a  tax  collector, 
and  should  be  so  regarded. 

From  another  county  I  get  this  statement :  The  tax  collected 
after  the  books  were  closed,  and  the  errors  and  insolvents  just 
about  balance,  so  we  make  no  record  of  these. 

From  a  member  of  the  House  of  Representatives,  I  get  this 
question:  "What  do  the  state  auditors  do  when  the  Legislature 
is  not  in  session?" 

Another  county  in  N"orth  Carolina  had  its  docket  so  full  that 
a  new  case  could  hardly  be  reached  within  a  year,  or  a  year 
and  a  half.  A  special  term  of  court  was  needed  and  wanted, 
but  the  information  was  that  a  "special  term  of  court  cost  too 
much,  and  the  county  couldn't  afford  it."  A  study  of  the  situa- 
tion was  made  by  Mr.  A.  B.  Andrews,  Jr.,  and  he  found  that 
the  cost  of  caring  for  the  prisoners  in  the  jail,  if  kept  until 
the  regular  term  of  court,  would  far  exceed  the  cost  of  the 
special  term.  The  new  term  was  ordered,  the  jail  cleared,  and 
the  county  saved  money. 

Is  an  audit  necessary?  Well,  what  is  an  audit  anyhow?  The 
general  idea  is  that  an  audit  is  to  check  up  a  set  of  books 
and  declare  the  result,  to  draw  up  and  present  an  account. 
I  like  to  think  of  an  audit  as  a  general  survey,  that  officially 
takes  into  consideration  every  element  that  enters  into  the  insti- 
tution, the  county,  or  the  state  under  consideration,  and  this 
I  believe  is  the  true  meaning  of  an  audit. 

Why  should  the  work  be  done  by  the  State?  Well,  the  law 
says  so,  but  the  law  says  so  because  the  State  can  do  'the  work 
cheaper  than  the  counties. 

In  1919  we  made  an  audit  of  a  county,  covering  a  period 
of  nine  years,  installed  an  accounting  system,  and  collected  over 
$7000  in  additional  tax  for  the  county.  This  work  cost  the 
county  $3000.  About  the  same  time  another  county  in  the 
State  employed  some  certified  public  accountants  to  make  an  audit 


•^ 


and  install  a  system.  They  covered  a  period  of  three  years, 
and  it  cost  the  county  about  $22,000,  and  so  far  as  I  know  they 
did  not  collect  an  extra  cent. 

The  State  has  at  its  command,  men  to  do  this  work,  trained 
in  the  science  of  accounting,  also  in  the  laws  governing  the 
collection  of  county  funds,  iboth  taxes  and  fees.  They  can, 
therefore,  make  a  true  and  accurate  audit. 

We  do  not  confine  our  audit  to  what  did  happen,  but  to 
what  ought  to  have  happened.  I  have  on  my  desk  a  report 
of  an  audit  of  a  county  made  by  one  of  the  largest  accounting 
firms  in  the  State,  a  firm  that  enjoys  a  large  practice  all  over 
this  State.  After  careful  consideration,  they  reached  the  conclu- 
sion that  the  State  was  due  the  county  $7800.  I  sent  a  man 
there  from  my  office,  and  he  made  an  examination  and  reached 
the  conclusion,  which  is  correct,  that  the  county  was  due  the 
State  $1800. 

Further,  when  the  State  makes  an  audit  of  a  county  it  places 
the  official  stamp  of  I^orth  Carolina  on  the  records  of  the 
county,  and  to  that  extent  protects  the  county  and  county  officers. 
The  State  can  bring  to  every  county  the  accumulated  knowledge 
gathered  from  all  other  counties.  The  State  can  reach  out 
into  all  the  States  of  the  Union,  and  gather  from  their  experi- 
ences the  best  methods  of  their  accounting.  The  State  comes 
to  the  county  as  its  own,  not  as  a  detective  to  find  fault  and 
prosecute,  but  as  a  big  brother,  conscious  of  his  duty,  offering 
the  strong  right  arm  of  its  superb  and  virile  manhood. 

Will  an  audit  cure  all  of  our  troubles?  Certainly  not;  it 
will  simply  diagnose  the  case,  and  brave  and  patriotic  men  and 
women  all  over  the  State  will  apply  remedial  measures.  There- 
fore, we  must  come  to  this  service  as  constructive  engineers, 
clear  away  the  rubbish  of  uncertainty,  and  doubt,  and  ignorance, 
which  have  held  us  in  bondage;  plant  our  structure  on  a  solid 
foundation  of  facts;  know  the  strength  of  our  base  of  supplies, 
and  that  connection  will  be  uninterrupted,  and  order  a  charge 
all  along  the  line.  This,  ladies  and  gentlemen,  is  my  interpre- 
tation of  local  government  in  terms  of  accounting.  Thus  far 
have  we  come  on  faith,  and  I  do  not  suggest  that  we  fail  to 
exercise  faith  now.  I  bring  you  no  new  doctrine,  but  the  plain 
and  simple  application  of  business  principles  to  governmental 
affairs.  We  are  just  beginning  the  largest  and  most  beautiful 
program  ever  undertaken  in  our  history.  Today  dawns  bright 
and   glorious,   because   of   the   toil   and   sacrifice   of   those   that 


i 


► 


Ill 


i 


90 


Attainable  Standards  in  Municipal  Peograms 


have  gone  before.  We  must  not  go  into  a  new  day  without 
summoning  to  our  aid  trained  and  efficient  men,  who  will  bring 
to  this  service  the  consecration  of  devoted  patriots,  who  will 
lead  us  out  of  the  wilderness  of  uncertainty  and  ignorance,  into 
the  perfect  day  of  truth,  so  that  we  may  enjoy  that  freedom 
which  we  crave,  and  for  which  we  plead. 

The  Bond  Act 

[Extra  Session  1921] 

AN  ACT  TO  PROVIDE  FOR  MAKING  EFFECTUAL  THE  MEANS  OF 
PAYMENT  PROVIDED  FOR  BONDS  AND  NOTES  OF  COUNTIES 
TOWNSHIPS,  SCHOOL  DISTRICTS,  AND  MUNICIPAL  CORPORA- 
TIONS, AND  TO  PROVIDE  FOR  SUPERVISION  OF  SUCH  MEANS 
BY  THE  STATE  AUDITOR,  AND  MAKING  NONCOMPLIANCE 
WITH  ITS  TERMS  A  MISDEMEANOR  AND  FIXING  A  PENALTY. 

Whereas,  the  default  in  payment  for  a  single  day  of  the  interest  or 
principal  of  bonds  or  notes  issued  by  any  county,  township,  school  dis- 
trict, or  municipal  corporation  results  not  only  in  discredit  to  the 
obligor,  but  seriously  affects  the  credit  of  the  State  itself  and  all  of  its 
political  subdivisions;  and  whereas,  in  order  to  protect  the  credit  of  the 
State  and  all  of  its  subdivisions,  it  is  imperative  to  provide  State  super- 
vision of  the  means  and  methods  for  payment  of  such  principal  and 
interest  promptly  as  the  same  falls  due:     Now,  therefore. 

The  General  Assembly  of  North  Carolina  do  enact: 

Sectiox  1.    That  on  or  before  March  first,  one  thousand  nine  hundred 
and  twenty-two,  it  shall  be  the  duty  of  the  clerk  or  secretary  or  other 
recording  officer  of  each  board  in  the  State  of  North  Carolina  which 
ha^  heretofore  authorized  the  issuance  of  county,  township,  school  dis- 
trict, or  municipal  bonds  or  notes  having  a  fixed  maturity  of  one  year 
or  more  from  the  date  thereof,  to  file  with  the  State  Auditor  a  state- 
ment giving  the  amount  of  such  bonds  or  notes  then  outstanding,  their 
date,  the  time  or  times  of  maturity  thereof  and  of  the  interest  payable 
thereon,  the  rate  of  interest  borne,  the  place  or  places  at  which  the 
principal  and  interest  are  payable,  the  denomination  of  the  bonds  or 
notes,  and  the  purpose  of  issuance.    The  statement  shall  also  contain 
the  name  of  the  board  in  which  is  vested  the  authority  and  power  to 
levy  the  taxes  for  the  payment  of  the  principal  and  interest  of  said 
bonds  or  notes,  and  a  reference  to  the  law  under  which  said  bonds  or 
notes  are  issued. 

Sec  2.    That  within  thirty  days  after  any  bond  or  note  having  a 
fixed  maturity  at  lea^t  one  year  after  date  thereof  shall  hereafter  be 


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University  of  IN'orth  Carolina 


91 


issued  by  any  county,  township,  school  district,  or  municipal  corpora- 
tion, the  recording  officers  of  its  governing  body,  or  of  the  board  thereof 
which  has  authorized  such  bonds  or  notes,  shall  file  wtih  the  State 
iiuditor  a  like  statement  a&  to  such  bonds  or  notes. 

Seo.  3.  That  it  shall  be  the  duty  of  the  State  Auditor  to  prepare  and 
furnish  to  all  counties,  townships,  school  districts,  and  municipal 
corporations  throughout  the  State  blank  forms  upon  which  such  state- 
ments may  be  made,  and  to  keep  the  statements  made  pursuant  to  this 
act  in  proper  file,  properly  indexed,  or  to  record  the  same  in  books  to 
be  kept  by  the  State  Auditor. 

Sec.  4.  It  shall  be  the  further  duty  of  the  State  Auditor  to  mail 
to  the  recording  officer  of  each  board  having  the  power  to  levy  taxes 
for  the  payment  of  the  principal  or  interest  of  such  obligations,  as  to 
which  statements  have  been  so  filed,  at  least  thirty  days  before  the 
time  for  the  levy  of  taxes  in  each  year,  a  statement  of  the  amount  to 
be  provided  by  taxation  or  otherwise  for  the  payment  of  the  interest 
accruing  upon  such  bonds  or  notes  within  the  following  year,  and  for 
the  payment  of  the  bonds  then  maturing,  if  serial  bonds,  or  for  a  sink- 
ing fund  if  such  bonds  do  not  mature  serially. 

Sec  5.  If  any  board  whose  duty  it  shall  be  to  provide  for  the  pay- 
ment by  taxation,  or  otherwise,  of  the  principal  or  interest  of  any  such 
bonds  or  notes  mentioned  in  sections  one  and  two  of  this  act  shall  will- 
fully fail  or  refuse  to  make  provision  for  such  payment  by  the  levy  of 
such  taxes  as  are  authorized  to  be  levied  therefor,  or  otherwise,  at  or 
before  the  time  provided  for  such  tax  levy,  any  member  thereof  who 
shall  be  present  at  the  time  for  such  levy  who  shall  not  have  voted  in 
favor  thereof,  or  who  shall  not  have  caused  his  request  that  such  pro- 
vision be  made  to  be  recorded  in  the  minutes  of  the  meeting,  shall  be 
subject  to  a  penalty  of  two  hundred  dollars  ($200),  which  he  shall  for- 
feit and  pay  to  any  taxpayer  or  to  any  holder  of  such  obligations  or 
interest  coupon  who  sues  for  the  same. 

Sec  6.  Any  member  of  any  board  voting  for  any  appropriation  of 
money  raised  by  taxation,  or  otherwise,  for  the  payment  of  the  interest 
and  principal  of  any  such  bonds  or  notes  to  any  other  purpose  until  all 
of  such  principal  and  interest  have  been  paid,  and  any  disbursing 
officer  who  pays  out  any  of  such  funds  to  any  other  purpose  than  the 
payment  of  such  prinjipal  and  interest  until  all  of  such  interest  and. 
principal  have  been  paid,  whether  or  not  such  pajnnent  shall  have  been 
ordered  by  any  board,  shall  be  guilty  of  a  misdemeanor. 

Sec  7.  If  any  officer  whose  duty  it  shall  be  to  pay  any  of  such 
principal  or  interest,  or  to  remit  funds  for  such  payment  to  an  agreed 
place  for  the  payment  thereof,  shall  fail  or  refuse  to  do  so  in  sufficient 


I 


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92  Attainable  Standards  in  Municipal  Programs 

time  for  such  payment,  funds  for  such  payment  being  in  his  hands, 
whether  or  not  such  payment  or  remission  of  payment  shall  have  been 
crdered  by  any  board  or  officer,  the  officer  so  failing  or  refusing  shall 
be  deemed  guilty  of  a  misdemeanor. 

Sec.  8.  It  shall  be  the  duty  of  the  State  Auditor  to  report  to  the 
solicitors  of  the  respective  districts  for  investigation  and  action  there- 
on any  violation  of  this  act  which  may  come  to  his  attention.  The 
State  Auditor  shall  publish  as  a  part  of  his  annual  report  a  statement 
of  the  bonded  indebtedness  of  all  the  subdivisions  mentioned  in  the  bill 
in  substance  as  herein  required.  That  this  act  shall  be  immediately 
published,  and  a  copy  of  same  be  sent  forthwith  by  the  secretary  of 
State  to  the  clerk,  secretary,  or  recording  officer  of  each  corporation 
included  herein. 

Sec.  9.  All  laws  or  parts  of  laws  in  conflict  herewith  are  hereby 
repealed. 

Sec.  10.     That  this  act  shall  be  in  force  from  and  after  its  ratification. 
Ratified  this  the  19th  day  of  December,  A.  D.  1921. 


The  Beal  Test 

After  all,  it  is  what  the  taxpayer  gets  for  the  taxes  he  pays  that 
counts.  If  he  gets  as  much  for  each  dollar  of  taxes  as  the  city  can 
possibly  give  him,  after  employing  every  proper  device  to  render 
justice  and  efficient,  intelligent,  worth-while  service  at  the  lowest 
possible  cost,  the  question  of  the  tax  rate  is  of  secondary  importance. 

But,  if  justice  is  not  meted  out  alike  to  all,  if  service  is  limited 
and  perfunctory,  if  waste  and  inefficiency  are  tolerated,  if,  in  other 
words,  the  city  government  falls  down  on  its  job,  any  tax  rate,  no 
matter  how  much  less  than  the  previous  one,  is  too  high. 

Philadelphia  Bureau  of  Municipal  Research 


CHAPTER  V 

ATTAINABLE  STANDARDS  IN  GENERAL 
SOCIAL  SERVICES 


ASPECTS  OF  CITY  PLANNING 

Morris  Knowles,  Pittsburg,   Pa. 

Mr.  Knowles  said  in  part : 

City  planning  is  so  valua;ble  to  communities  as  to  be  almost 
essential.  Some  cities  can  grow  and  prosper  without  any  plan; 
most  modern  cities  have  done  so,  and  have  gotten  along  without 
realizing  how  much  better  the  result  might  have  been.  Most  of 
our  present  communities  have  not  had  any  advantage  over  each 
other  given  by  a  good  plan. 

But  a  new  era  is  now  beginning.  Our  most  progressive  cities 
realize  that  skill  and  economy  of  effort  count  in  gaining  and  pre- 
serving the  lead.  Therefore  planning  and  forethought  have  re- 
sulted, so  that  no  rational  advantage  is  neglected  and  handicaps 
are  overcome  and  turned  into  advantages.  When  no  city  had  a 
plan  all  were  equally  wasteful  of  resources.  Now,  such  cities  as 
get  good  plans  will  soon  out-step  their  rivals,  because  with  the 
saved  expenditure  of  public  money  they  will  secure  greater  results. 

A  plan  for  a  city  is  of  as  practical  value  in  building  that 
city  as  a  plan  for  a  great  manufacturing  establishment  or  for  a 
hotel  or  public  building.  A  few  years  hence  no  civic  group  will 
plan  to  develop  its  city  unless  it  has  a  definite  plan  to  serve  as  a 
guide. 

It  will  know  where  new  factories  will  not  only  be  best  served 
by  transportation  facilities,  for  raw  material  and  finished  product, 
but  where  they  will  get  at  the  least  expense  such  municipal  serv- 
ices as  sewer,  water,  lights,  power,  and  where  they  will  be  most 
convenient  of  access  from  well  designed  home  districts  for  the 
workers.  It  will  know  what  areas  are  best  adapted  to  retail 
trade  and  most  convenient  to  shoppers,  and  it  will  place  its  parks 
so  that  they  serve  the  greatest  number  of  people,  and  add  most  to 
the  attractiveness  of  the  community  without  stopping  the  de- 
velopment of  business  areas. 


f 
11 


r 


94 


Attainable  Standards  in  Municipal  Pbograms 


Univebsity  of  iN'oRTH  Carolina 


95 


But  citj  planning  does  not  consist  merely  in  getting  a  good 
plan  on  paper  The  best  paper  plan  may  not  be  foUowed  unless 
It  18  really  sold  to  the  citizens.  And  it  won't  be  sold  to  them 
unless  they  can  be  made  to  see  its  value  to  themselves.  And  they 
won  t  see  its  value  unless  they  work  on  it.  The  City  Planning 
Commission  is  more  than  a  group  of  men  authorized  to  hire  a 
protessional  city  planner,  accept  what  he  gives  them  and  pay  his 
bill.  JNo  city  plan  can  be  imposed  upon  a  community  by  some 
one  from  the  outside.  ^     ^ 

The  Commission  should  learn  at  least  the  purposes  and  some- 
thing of  the  principles  of  city  planning;  it  should  study  local 
problems  and  seek  solutions  of  them;  it  should  open  its  eyes  to 
the  natural  advantages  of  its  city  and  try  to  devise  ways  of  mak- 
ing the  most  of  them.  j  ^r. 

The  complete  definition  of  town  planning  is  the  coordination 
ot  comprehensive  programs  for  the  betterment  or  creation  of  the 
facilities  for  every  municipal  and  public  activity;  makes  possible 
the  development  of  a  city  along  predetermined  and  logical  lines, 
instead  leaving  to  casual  whims  and  fancies  of  individuals. 

Objects  of  town  planning  are  to  control  and  promote  order 
development  and  growth,  and  by  results  secured  make  the  city 
a  good  place  m  which  to  live  and  work,  in  which  to  live  comfort- 
ably,  enjoyably  and  healthfully  and  to  do  business  economically 
indudT"'^"        a«<i   promote   inclustry.     |City   planning   should 

1.  Zoning,  which  regulates  the  use  for  which  property  may 
be  employed,  the  height  to  which  buildings  may  be  built  and 
the  area  that  may  be  covered  by  buildings. 

2.  A  street  system  which  contemplates  a  plan  so  as  to  pro- 
vide amply  for  the  increased  volume  of  traffic,  thoroughfares 
where  needed,  quiet  streets  in  the  residential  sections,  and 
altogether  the  kind  of  streets  and  type  of  pavement  which 
18  required  by  the  character  of  the  district  which  it  will 
serve.  It  is  intimately  tied  into  zoning,  because  the  dis- 
tricts determine  the  streets. 

3.  Transportation  by  rail,  water  and  street  railways. 

4.  Municipal  facilities  such  as  public  works,  water  supply 
sewers  and  drainage;  refuse  collection  and  disposal.  ' 

5.  Recreation  facilities  such  ajs  play  grounds,  parks    play- 
ing fields,  parkways  and  boulevards.  ' 

6.  Public  buildings,  civic  centers,  etc.  • 

7.  Public  policy  as  to  housing,  buildings,  and  sanitary  con- 
ditions. 


All  of  these  are  interrelated  and  none  can  completely  be  settled 
without  reference  to  the  other  subjects.  In  fact,  this  has  become 
so  well  recognized  that  we  now  recognize  that  one  community 
cannot  be  planned  without  reference  to  the  neighborhoods  in  the 
vicinity.  This  has  developed  the  su'bject  of  regional  planning 
which  is  interrelated  to  county  and  town  administration,  for  which 
this  conference  is  called. 

Standards  are  difficult  to  determine.  While  of  much  local  in- 
terest, standards  are  dependant  upon  the  type,  size,  topography 
and  local  conditions,  all  of  which  are  variable. 

Community  planning  should  include  a  consideration  of  all  of 
the  subjects  mentioned,  and  a  study  of  those  which  appear  im- 
portant. The  plan  must  look  to  the  future,  it  must  be  compre- 
hensive and  must  be  considered  with  a  breadth  of  view  and  taste. 

City  planning  is  not  a  specialty  but  a  coordination  of  pro- 
fessional activities  such  as  engineering,  architecture,  landscape 
work,  real  estate  developments,  legal  knowledge  applied  to  zoning ; 
and  the  services  of  all  such  men,  as  well  as  contractors,  business 
leaders,  civic  men  and  women,  should  be  secured  and  coordinated 
under  the  wise  direction  of  able  leadership. 

Community  committees  are  needed — discussion,  propaganda  and 
education.  No  city  plan  is  successfully  put  over  by  some  one 
from  the  outside  alone.  It  must  be  the  work  finally  of  local 
people.  It  is  important  to  pick  out  a  few  salient  features  and 
push  these  to  completion  in  order  that  public  opinion  may  be 
secured. 

City  planning  pays  because  it  prevents  unwise  expenditure  in 
public  works,  avoids  increased  cost  in  the  future  to  correct  mis- 
takes and  increases  and  stabilizes  real  estate  values.  As  a  by- 
product there  always  arises  a  stimulation  of  interest  and  increased 
support  in  civic  and  city  affairs. 

(The  paper  was  illustrated  by  slides  showing  the  examples  of 
successful  city  planning). 

Mr.  Knowles  spoke  of  the  fitting  inclusion  of  town  planning  in 
a  conference  for  Town  and  County  Administration  as  particularly 
at  the  growing  State  University  where  planning  and  development 
for  the  future  is  going  on  under  the  able  direction  of  Mr.  Atwood. 
He  also  referred  to  the  well  known  activities  in  planning  for  the 
development  of  the  human  and  natural  physical  resources  of  the 
State  by  Drs.  Rankin  and  Pratt,  respectively,  and  recent  state 
highway  planning. 


I 

U 


9($  Attainable  Standards  in  Municipal  Programs 

ATTAINABLE  PROGRAM  OF  ACTIVITIES  FOR  AN 
AVERAGE    COMMERCUL    ORGANIZATION 

Coleman  W.  Roberts,  President  North  Carolina   Commercial   Secretaries 
Association;    Secretary    Greensboro   Chamber   of   Commerce 

In  approaching  my  subject,  "An  Attainable  Program  for  Com- 
munity Organizations,"  I  would  like  to  speak  briefly  about  the 
organization  that  is  to  work  out,  formulate  and  execute  this 
attainable  program.  In  speaking  I  shall  refer  to  Community 
Organization  and  by  that  I  shall  mean  any  commercial  organiza- 
tion in  the  community,  by  whatsoever  name  it  may  be  known. 
I  think  Chamber  of  Commerce  is  preferable  and  almost  standard. 

A  Little  HistoiT 

The  chamber  of  commerce  idea  is  nothing  new  under  the  sun. 
The  name  Chamber  of  Commerce  was  first  applied  to  an  associa- 
tion formed  by  the  merchants  of  Marseilles  early  in  the  fifteenth 
century,  though  not  definitely  organized  until  1650.  In  addition 
to  trade  matters  this  body  exercised  limited  administrative  author- 
ity. From  early  times  chambers  of  commerce  in  France  have 
been  closely  affiliated  with  their  government,  and  this  is  also 
true  of  these  organizations  in  several  European  countries. 

The  first  board  of  trade  was  formed  in  1636  by  Charles  of 
England.  At  that  time  regulation  of  commerce  was  a  royal  pre- 
rogative and  the  board  acted  as  an  advisory  committee.  In 
1655  Cromwell  reestablished  this  council.  I  understand  it  is 
still  an  important  part  of  the  English  governmental  system, 
having  existed,  with  the  exception  of  a  few  years,  continuously 
since  CromwelFs  time. 

The  oldest  commercial  organization  in  this  country  is  the 
chamber  of  commerce  of  the  State  of  N'ew  York,  founded  in 
1786  in  New  York  City.  It  was  formed  by  twenty  men.  The 
Charleston,  S.  C.  chamber  of  commerce  was  organized  in  1784, 
and  its  records  show  that  they  have  entertained  leading  men  of 
this  nation  and  of  the  world,  including  our  first  President,  George 
Washington.  In  1801  the  Philadelphia  chamber  was  organized 
by  the  merchants  of  that  city,  and  at  the  end  of  1801  there  were 
^ve  such  organizations.  Today  there  are  over  5000  similar 
organizations. 

There  is  a  great  factor  that  demands  a  community  organization 
in  every  community.  This  factor  is  the  competition  of  commu- 
nities, exemplified  in  the  battle  of  cities  for  prestige  and  pre- 


Univbbsity  of  Nowtb.  Cabouna 


97 


eminence.  So  earnestly  wages  the  competition  of  cities  in  this 
country  that  any  community  which  does  not  organize  is  in  jeop- 
ardy. The  curse  of  a  community  is  lethargy.  All  a  community 
needs  to  do,  to  blast  local  business  is — to  do  nothing.  A  town 
unorganized  cannot  compete  with  organized  towns. 

I  have  been  in  some  communities  where  some  have  said  the 
town  got  along  for  years  without  a  commercial  organization. 
Yes,  they  got  along.  I  spent  a  year  in  one  of  those  towns 
one  week. 

What  is  a  Community  Organization 

The  new  and  modem  community  organization  is  a  conservatory 
of  citizenship.  It  is  an  organization  through  which  publio- 
spirited  citizens  in  a  community  may  express  themselves  collect- 
ively on  questions  of  community  weKare,  and  through  which 
they  may  make  their  collective  desires  effective.  It  is  based 
upon  the  well  recognizd  principle  that  more  can  be  accomplished 
by  working  together  for  a  common  purpose  than  by  individual 
effort.  The  modern  community  organization  is  organized  to 
render  a  service,  and  anything  of  interest  to  the  welfare  and 
prosperity  of  the  community  is  its  business. 

Talne  of  a  Commnnlty  Organization 

The  monetary  value  of  a  community  organization  cannot  be 
estimated.  If  you  will  go  to  any  progressive  town  or  city  in  this 
nation  you  will  find  a  chamber  of  commerce,  and  if  you  will 
trace  the  development  of  that  town  you  will  find  that  the  citizens 
of  the  town  working  through  the  chamber  of  commerce  are  respon- 
sible for  the  growth  and  development  of  the  town.  Then  if  you 
will  go  to  an  undeveloped  town,  one  that  has  not  grown,  except 
from  natural  birth,  you  will  find  the  citizens  are  not  and  never 
have  been  organized  into  a  working  community  organization. 
They  may  have  had  an  organization  in  name  only.  In  other 
words,  the  citizens  never  put  enough  in  it  to  get  something  out. 
It  is  the  law  of  nature  and  of  commerce,  that  you  can  not  get 
something  out  without  first  putting  something  in;  and  you  get 
out  according  to  how  you  put  in. 

Why  Citizens  Should  Support  the  Community  Organizatioii 

Our    Creator    gave    us    life    for    but    one    purpose— ^A-of    we 
might  serve.    The  first  duty   of  man   in  his  status   of  society 
18    to    be    self-supporting;    his    second    duty    is    the    mainten- 
ance of  a  home ;  and  his  third  duty,  as  a  citizen  is  to  contribute 
7 


98 


Attainable  Standa&os  in  Municipal  Pbograms 


Univebsity  of  Nobth  Cabolina 


99 


L 


personally  and  effectively  to  the  welfare  of  the  community  in 
which  he  lives  and  prospers.  Every  citizen  of  every  community 
owes  his  hearty  support  to  his  commercial  organization.  The 
man  who  will  not  lend  his  brains,  his  energy  and  some  of  his 
money  to  the  efforts  of  his  fellow  citizens  in  directing  the 
constructive  forces  of  his  community,  along  the  course  that  is 
best  for  the  city  as  a  whole,  is  not  a  useful  citizen. 

Right  here  let  me  say  that  a  great  majority  of  the  chain  stores 
of  this  country  absolutely  refuse  to  support  the  communities  in 
which  they  locate.  They  go  to  a  town  because  the  interested 
citizens  have  built  it  and  made  it  a  good  town  in  which  to  do 
business.  The  chain  store  goes  to  reap  the  benefits  brought 
about  by  the  efforts  of  others,  and  absolutely  refuse  to  do  their  bit. 

AN  UNPARDONABLE  SIN  IS 

TO  LIVE  IN  A  TOWN, 

To  make  a  living  off  of  it,  or  out  of  it; 

To  educate  your  children  in  it; 

To  get  everjrthing  you  possibly  can 

out  of  it,  and  put  absolutely  nothing  into  it. 

The  business  man  who  imagines  that  he  can  live  independently 
of  the  activities  of  his  fellow  citizens  is  engaging  in  costly  self- 
deception.  Every  civilized  man  is  dependent  upon  others.  The 
retailer  needs  customers;  the  lawyer,  clients;  the  doctor,  patients; 
the  manufacturer,  laborers;  the  worker,  employment.  Even  the 
thief  needs  victims;  the  snob,  the  gaping  crowd;  the  tightwad, 
the  opportunity  to  hoard  money  and  pinch  his  spirit.  Absolute 
"independence"  may  be  the  subject  of  foolish  boasting,  but  it 
does  not  exist. 

Man  owes  something  to  his  community  besides  taxes  to  the 
government,  which  makes  his  prosperity  possible.  His  taxes 
merely  pay  the  cost  of  existence.  Until  man  has  rendered  a 
public  service  to  his  community  and  to  his  country  he  has 
not  fulfilled  his  mission  in  life. 

The  fact  is  indisputable  that  the  most  prominent  men,  both 
commercial  and  professional,  in  all  wide-awake  towns  are  actively 
interested  in  their  commercial  organization.  No  citizen  can 
justify  hia  conduct  in  absenting  himself  from  this  line  of  duty. 

Some  business  men  remark  that  they  are  too  busy  with  their 
own  business  to  participate  in  commercial  organization  work. 


1   iV 


In  this  attitude  they  most  grievously  err.  Membership  and  activ- 
ity  in  the  local  chamber  of  commerce  is  recognized  today  as 
a  department  of  one's  personal  business,  indissolubly  connected. 
Declination  to  associate  in  a  local  community  organization  is 
evidence  that  a  citizen  is  an  object  of  charity  at  the  hands  of 
his   fellow    citizens    who    are   togetherr  ill  Ttem  Aw5>^f or    the 

communzty.  ^CHOOL  OF  BUSINESS 

Who  is  Responsible  for  a  Community  Organization 

The  citizens  are  responsible  for  the  organization,  and  the 
organization  is  rsponsible  to  them.  The  president  elected  by 
the  membership  is  the  official  head  and  the  Secretary  employed 
by  the  board  of  directors  is  the  executive  head. 

The  organization  and  the  secretary  must  be  fearless.  Where 
something  worth  while  is  accomplished  there  wiU  be  criticism. 
If  you  don't  want  to  be  criticised  don't  do  anything. 

How  are  Community  Organisationg  Financed 

They  should  be  put  on  a  membership  basis  of  $25  per  year 
per  membership.  Memberships  to  be  held  by  all  citizens  and 
corporations. 

What  Can  a  Community  Organization  Do. 

What  is  an  Attainable  Program?  This  depends  on  the  commu-' 
nity  needs.  I  would  not  attempt  to  outline  a  definite  program 
which  would  be  appropriate  for  any  or  every  conmiunity.  That 
would  not  be  at  all  practical.  I  shall  try  to  mention  a  number 
of  basic  activities.  !N'ot  all  of  them,  or  the  same  number  of  any 
others,  should  be  included  in  a  one-year  program.  A  prepared 
program  for  a  community  organization  activities  should  be  short, 
definite  and  practical.  An  attainable  program  for  the  commu- 
nity organization  would  be  one  that  could  be  carried  out,  and  care 
should  be  exercised  in  selecting  a  program  that  can  be  carried 
out.  Cities  differ  in  the  amount  of  progress  they  have  made, 
and  in  their  short  comings.  ]N*o  one  can  lay  out  a  standard 
program. 

In  making  an  outline  of  the  basic  activities  I  shall  classify 
my  remarks  under  the  following  headings:  Civic  Affairs,  Pub- 
licity, Commercial,  Industrial,  Transportation,  Agriculture. 


) 


M 


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[i 


I 


100        Attainable  Standards  m  Municipal  Pbogbams 

ClTie  Affairs 

The  greatest  number  of  activities  possibly  would  come  under 
the  head  of  civic  affairs.  In  this  department  there  is  much 
to  be  done  in  every  community,  r^ardless  of  size. 

Cooperate  With  City  and  County  Governments.  The  Com- 
munity organization  does  not  attempt  to  usurp  the  functions 
of  the  city  or  county  government,  but  cooperates  with  and 
assists  them. 

Personality  and  Hospitality.  The  American  city  through  its 
leaders  has  come  more  and  more  to  appreciate  that  a  community 
has  a  reputation  and  a  character,  as  has  an  individual.  Just 
as  a  man  has  a  name  for  being  clean  and  enterprising  and 
courteous,  so  a  town  is  known  as  clean,  enterprising  and  cour- 
teous. Just  as  a  man  is  slovenly,  selfish  and  boorish,  so  a  town 
may  be  slovenly,  selfish  and  boorish.  One  gets  into  trouble  trying 
to  put  a  finger  on  the  qualities  that  give  character  to  a  town,  or 
to  a  person  either,  for  that  matter.  So  is  the  combination,  the 
result,  indefinable. 

You  will  find  as  a  rule  that  communities  made  up  of  citizens 
with  a  personality  and  a  people  who  are  hospitable,  are  happy, 
prosperous  contented  communities. 

What  is  more  disgusting  than  to  have  a  fellow  give  you  the 
dishrag  handshake.  A  handshake  may  seem  insignificanii  to 
you,  but  it  is,  in  my  opinion,  a  symptom  of  character  and 
personality.  Some  towns  remind  me  of  a  dishrag  handshake. 
In  such  a  greeting  there  is  a  lack  of  hospitality;  it  does  not 
seem  to  come  from  the  heart. 

Civic  Pride  and  Civic  Spirit.  Civic  pride  and  civic  spirit 
is  something  you  notice  and  feel  the  moment  you  arrive  in  a 
community.  You  either  see  and  feel  it,  or  the  lack  of  it. 
Where  there  is  civic  pride  and  a  civic  spirit  there  is  unself- 
ishness, happiness,  progi-ess  and  an  ambitious  citizenship,  and 
an  ambitious  community.  Create  a  civic  pride  and  civic  spirit 
and  you  have  made  the  first  great  step  towards  building  a 
progressive,  prosperous,  healthful  and  happy  citizenship.  A  very 
good  illustration  I  think  is  made  by  this  story:  "I  see,"  remarked 
a  gentleman  as  he  paid  a  small  newsboy  for  his  paper,  "that  you 
are  putting  up  a  good  many  nice  buildings  in  your  town." 
"That  is  the  only  kind  we  put  up  here,  sir,"  replied  the  little 
fellow  with  a  touch  of  civic  pride. 


£> 


Univeesity  op  IToETH  Cabolina 


101 


The  community  can  never  rise  higher  than  the  source  of  its 
ideals. 

Form  of  Government.  To  grow  commercially,  intellectually 
and  morally  there  must  be  a  foundation  to  build  on,  and  this 
foundation  in  our  community  is  our  municipal  government. 
Unforunately  our  municipal  governments,  or  most  of  them,  are 
in  the  hands  of  politicians  instead  of  business  men.  This  is,  in 
my  opinion,  as  it  should  not  be.  It  should  be  one  of  the  principal 
functions  of  a  community  organization  (and  this  is  not  a  politi- 
cal question)  to  secure  a  good  form  of  government  and  good 
men  to  run  it.  In  my  judgment  the  ideal  form  is  the  council- 
manager  form. 


Education  and  Training  for  Citizenship 

Educational  work  is  one  of  foremost  importance  in  every 
community.  See  that  you  have  good  schools,  that  your  taxes  are 
enough  to  produce  sufficient  revenue  to  have  best  teachers  and 
every  educational  facility.  A  function  every  community  might 
give  much  attention  is  that  of  training  its  boys  and  girls  for 
citizenship.  Its  amazing  how  little  many  people  know  about 
the  obligations  and  duties  of  citizenship.  Some  of  the  schools 
are  doing  a  great  work  along  this  line,  and  some  are  not.  The 
boys  and  girls  of  today  are  the  citizens  of  tomorrow,  and  the 
welfare  and  prosperity  of  our  community,  our  State  and  our 
nation  lies  in  their  hands.  They  should  be  given  the  advantage 
of  every  possible  training  that  they  might  be  able  to  effectively 
and  creditably  assume  their  obligations  of  life. 

The  greatest  service  we  can  do  a  human  being  is  to  give  him 
a  right  education,  physical,  intellectual,  moral  and  religious. 
If  it  is  our  duty  to  do  good  to  all,  as  far  as  in  us  lies,  it  is 
our  duty  to  labor  for  the  education  of  all,  that  no  child  of 
God  may  live  with  an  enfeebled  body,  or  a  darkened  mind,  or 
a  callous  heart,  or  a  perverted  conscience. 

Health  and  Sanitation  of  the  Community.  An  unhealthy 
community  cannot  and  should  not  grow.  Where  the  health  of 
a  community  is  endangered  there  is  no  possibility  for  substantial 
growth  of  a  satisfied  citizenship.  Health  and  sanitation  will 
call  for  the  elimination  of  the  breeding  places  of  the  fly  and 
mosquito;  regulation  for  disposal  of  garbage  and  trash;  inspec- 


102 


Attainable  Standards  in  Municipal  Programs 


University  op  J^Torth  Carolina 


103 


tioa  01  all  school  children,  the  employment  of  a  visiting  nurse 
and  a  county  and  community  physician.  Annual  clean-up  weeks 
are  good,  but  why  should  they  be?  Make  the  community  clean 
and  keep  it  clean  all  the  time.  We  would  not  think  of  taking 
only  one  annual  bath,  then  why  so  treat  the  community  in 
which  we  live. 

Fire  Prevention,  Possibly  there  is  not  a  community  in  the 
State  without  a  number  of  fire  hazards.  Any  amount  of  effort 
is  worth  while  in  this  direction.  Volunteer  inspection  is  desirable 
where  the  community  is  too  small  to  provide  inspection  by  fire 
department  officers. 

Town  Planning  and  Beautification.  Practically  every  town  has 
a  reason  to  believe  it  will  develop  and  grow;  and  a  definite  plan 
of  development  of  the  physical  town  should  be  adopted  as  early 
as  possible  and  strictly  adhered  to.  Town  plans  are  desirable 
when  they  are  executed,  but  entirely  too  many  are  made,  printed 
and  put  upon  the  shelves. 

Environment  has  a  great  deal  to  do  with  the  happiness  and 
success  of  a  community.  Effective  work  can  be  accomplished 
in  making  unsightly  places  attractive,  especially  around  the  pas- 
senger stations;  in  encouraging  attractive  lawns,  flower,  and  vege- 
table gardens.  The  appearance  of  a  town  has  the  same  effect  as 
the  appearance  of  an  individual. 

Charitable  Ajfairs.  Every  community  has  a  great  many  chari- 
table organizations  to  support.  I  would  most  strongly  recommend 
a  community  budget  in  every  instance.  By  this  I  mean  a 
budget  commission  representing  all  organizations  raising  funds 
from  volunteer  subscriptions  for  charitable  work.  Each  organi- 
zation participating  would  hold  its  identity.  There  would  simply 
be  one  campaign  a  year  to  raise  funds  for  all.  Such  a  plan  coordi- 
nates the  work  of  all,  eliminates  the  duplication  of  energy  and  ex- 
pense, furnishes  a  close  check  on  all  work  and  makes  all  organiza- 
tion more  effective  in  the  special  phase  of  the  work  for  which  they 
are  best  fitted.  The  budget  plan  is  operating  successfully  in 
many  places  in  this  country. 


A 


Recreation  Facilities.  The  future  of  your  boy  and  girl  depends 
on  their  physical  development  as  well  as  their  mental  training. 
We  make 

Plenty  of  room  for  shops  and  stores — 

Mammon  must  have  the  best; 

Plenty  of  room  for  dives  and  dens 

That  rot  on  the  city's  breast. 

Plenty  of  room  for  the  lures  that  lead 

The  hearts  of  our  youths  astray, 

But  never  a  cent  on  playground  spent; 

No,  never  a  place  to  play. 

Plenty  of  room  for  schools  and  halls, 

Plenty  of  room  for  art; 

Plenty  of  room  for  teas  and  balls. 

Platform,  stage  and  mart. 

Proud  is  the  city — she  finds  a  place 

For  many  a  fad  today. 

But  she'b  more  than  blind  if  she  fails  to  find 

A  place  for  the  boys  to  play. 

Give  them  a  chance  for  innocent  sport, 

Give  them  a  chance  for  fun; 

Better  a  playground  plot  than  a  court 

And  a  jail  when  the  harm  is  done! 

Give  them  a  chance — ^if  you  stint  them  now, 

Tomorrow  you'll  have  to  pay 

A  larger  bill  for  darker  ill. 

So  give  them  a  chance  to  play. 

— Dennis  A,  McCarthy. 

It  is  false  economy  for  a  community  not  to  provide  a  place 
for  its  grown  people,  as  well  as  the  children,  to  play.  The 
entire  citizenship  can  take  part  in  such  community  affairs  as 
municipal  Christmas  trees,  municipal  Hallowe'en  parties,  swim- 
ming pools,  community  singing,  dancing,  and  various  games. 

Transportation  and  Commnnieatlon 

Transportation  and  communication  facilities  are  essential  to 
the  growth  of  every  community. 

Communication.  The  mail,  telephone  and  telegraph  provide 
your  means  of  communication  and  often  these  services  can  be  ma- 
terially improved  where  there  is  cooperation  on  the  part  of  the 
citizenship. 


T^ 


14)4        Attainable  Standards  in  Municipal  Pbogeams 

highways.  Transi>ortation  over  highways  is  the  great  oppor- 
tunity of  the  day.  See  that  your  community  is  provided  with 
highways  leading  to  the  important  centers,  and  from  the  trading 
district  to  your  community.  Work  for  the  construction  of  good 
roads,  and  then  see  that  they  are  maintained.  So  many  com- 
munities are  entirely  too  negligent  in  marking  the  roads,  cross- 
ings, and  in  the  smaller  place,  even  the  community.  The  tourist 
driving  through  never  recognizes  your  community  unless  he  passes 
the  depot  and  there  sees  the  name  of  the  place.  Put  up  a  sign 
with  the  name  of  your  town  on  it.    It  will  he  good  advertising. 

Railroads.  A  long  time  ago  it  was  the  chief  function  of  com- 
mercial organizations  to  fight  the  railroads.  IS'ow,  instead,  there 
is  an  attitude  of  cooperation,  and  hotter  results  are  accomplished. 
There  is  much  to  do  in  this  line.  Study  your  community,  see  if 
you  are  discriminated  against;  join  a  good  traffic  association. 
Consult  your  shippers  and  learn  if  they  are  heing  discriminated 
against.  Have  your  freight  bills  audited  by  a  mutual  traffic 
association. 

Water.  If  there  are  possibilities  for  water  transportation  in 
the  community  use  every  means  to  develop  it,  but  be  sensible. 

Air.  Aerial  transportation  will  possibly  be  on  a  commercial 
basis  in  a  few  years,  and  it  would  therefore  be  well  to  look  ahead 
for  suitable  landing  fields. 

Commercial 

The  first  thing  in  your  mind  is  to  preach  trade  at  home.  Eight 
you  are,  but  make  trading  at  home  possible  and  practical.  Mer- 
chants cannot  expect  to  hold  the  trade  of  a  community  unless 
they  give  service,  offer  choice,  and  make  the  prices  right.  We 
hear  lots  about  trading  at  home  and  not  enough  about  service  and 
price  at  home.  To  develop  trade  at  home,  places  an  equal  re- 
sponsibility on  the  merchant  and  the  citizen. 

Our  communities  of  average  size  can  well  afford  a  retail  credit 
bureau  for  the  retail  merchants.  Such  a  bureau  is  a  benefit  to 
the  customers  as  well  as  the  merchant.  It  protects  the  merchant 
and  prevents  over-buying  and  extravagance  of  the  customer. 
Dollar-days,  pay-up  weeks,  retail  trade  excursions  are  good  things. 

Wholesale  Trade.  There  is  opportunity  in  every  centrally  lo- 
cated community  for  developing  a  worth-while  wholesale  and 
jobbing  trade.  To  develop  this  feature  of  commerce  you  possibly 
need  to  give  special  attention  to  transportation  facilities  and  rates. 


* 


Univeesitt  of  Koeth  Carolina 


Industrial 


105 


For  years,  and  thank  goodness  those  years  are  gone,  it  was  the 
belief  of  citizens  of  commercial  organizations  and  secretaries  that 
the  chief  activities  of  commercial  organizations  was  to  go  factory 
grabbing,  and  then  to  offer  them  everything  under  the  sun,  free 
sites,  bonuses,  free  taxes,  free  water,  etc.  It  is  all  wrong,  it 
was  all  wrong.  I  wish  to  most  emphatically  denounce  the  giving 
of  free  sites  or  bonuses  of  any  character.  When  you  seek  an  in- 
dustry seek  one  that  can  succeed  in  your  community,  one  that  can 
operate  to  an  advantage  in  your  community,  and  one  that  can  make 
a  profit.  You  don't  want  an  industry  that  is  on  the  charity  list. 
An  industry  that  is  worth  while  wants  to  go  to  the  right  location 
regardless  of  the  saving  of  a  few  dollars.  Free  sites,  etc.,  encour- 
age undesirable  industrial  development  in  most  every  case.  The 
factory  you  want  is  the  one  that  can  operate  in  your  community 
economically. 

It  isn't  the  job  of  Commercial  organization  to  sell  stock  in 
foreign  concerns.  There  are  instances,  however,  where  it  is  the 
place  of  the  organization  to  sell  stock  in  a  locally  developed  enter- 
prise for  the  good  of  the  city.  I  would  discourage  the  industry 
that  will  locate  in  your  community  provided  you  come  to  their 
financial  assistance.  Learn  the  kind  of  industry  that  will  succeed. 
Study  your  natural  resources,  know  what  your  raw  materials  are, 
and  your  near-by  markets.    Do  not  work  blindly. 

Fubllelty  and  AdTertising 

He  was  the  best  secretary  many  years  ago,  or  rather  he  thought 
he  was,  who  could  exaggerate  the  most.  He  was  wrong.  The 
commercial  organization  is  a  business  institution  on  a  business 
basis  and  the  publicity  and  advertising  should  be  done  on  that 
basis.  But  to  this  day  you  can  pick  up  literature  from  certain 
towns  and  find  that  they  claim  to  be  the  healthiest  place  on  earth, 
have  the  purest  water  in  the  country,  where  you  can  live  the 
cheapest  of  any  place,  where  the  climate  is  better  all  year  round 
than  anywhere  else.  The  modern  secretary  and  the  modern  or- 
ganization expresses  disapproval  of  such  practice.  It  is  unethical, 
undignified,  untruthful,  and  bad  business. 

Almost  every  community,  matters  not  how  small,  can  afford  to 
spend  a  few  dollars  and  have  printed  a  large  supply  of  3 1^  by  5 
folders  briefly  describing  the  town,  to  be  sent  out  in  every  mail. 
This  I  think  to  be  one  of  the  best  forms  of  community  advertising. 
An  annual  postcard  day  is  a  good  stunt.  The  real  news  about 
,your  town  sent  the  leading  papers,  is  splendid  publicity.     Every 


n. 


106 


Attainable  Standasds  in  Municipal  Pboosams 


town  ahould  have  a  good  newspaper;  if  not  large  enough  for 
a  daily,  it  should  support  the  nearest  and  best,  and  have  a  good 
weekly  of  its  own.  iNTewspaper  and  magazine  advertising  are  good 
where  the  money  is  available  to  purchase  the  space  to  advertise 
definitely.  Of  course  it  is  necessary  for  resort  towns  to  do  exten- 
sive advertising,  and  it  p^s. 

For  the  community  that  is  prepared  to  handle  them,  conven- 
tions are  good  advertising  and  produce  good  business.  I  do  not 
favor  and  do  not  think  it  right  for  a  community  to  spend  much 
money  on  entertaining  conventions.  The  day  will  soon  be  here 
when  all  conventions  will  establish  a  registration  fee  which  will 
pay  all  cost  of  handling  each  convention. 

Agriculture 

Last  but  not  least  in  importance,  I  call  your  attention  to  work 
to  be  done  in  connection  with  your  rural  development. 

Agrculture  is  the  basis  of  all  prosperity.  Every  good  farm  is 
worth  just  as  much  to  a  community  as  a  small  size  factory.  See 
that  you  have  a  good  county  farm  agent,  home  demonstration 
agent.  The  employment  of  these  is,  I  believe,  one  of  the  best  in- 
vestments a  county  can  make.  These  workers  will  increase  the 
productive  ability  of  the  farm  lands;  they  will  cause  the  lands  to 
enhance  in  value.  Visit  the  farmers,  entertain  them  annually. 
Hold  a  farmers'  congress,  establish  a  curb  market.  See  that  he 
is  treated  fairly  when  he  comes  to  town,  make  him  comfortable, 
provide  a  rest  room  for  him  and  his  family. 

Although  I  believe  the  outline  of  activities  which  I  have  men- 
tioned are  attainable,  the  organization  that  can  attain  them  in 
any  short  space  of  time  will  have  accomplished  much. 

In  planning  every  community  activity  the  citizenship  should 
be  far-sighted  and  look  into  the  future.    For, 

"When  we  build,  let  us  think  that  we  build  forever.  Let 
it  not  be  for  the  present  delight,  nor  for  present  use 
alone.  Let  it  be  such  work  as  our  descendants  will  thank 
us  for,  land  let  us  think,  as  we  lay  stone  on  stone,  that 
a  time  is  to  come  when  those  stones  will  be  sacred  be- 
cause our  hands  have  touched  them,  and  that  men  will 
say  as  they  look  upon  the  labor  and  wrought  substance 
of  them,  See !    This  our  fathers  did  for  us." 

— John  Ruskin. 


^f 


University  of  ITobth  Carolina 
ATTAINABLE  STANDARDS  IN  COMMUNITY  COUNCILS 


107 


J.  p.  Stbinbe,  Professor  of  Social  Technology,  UniversUv  of  NoHh  Carolina 

One  of  the  problems  confronted  by  any  city,  whether  large 
or  small,  is  the  proper  coordination  of  its  social  welfare  activi- 
ties. Even  in  cities  where  to  the  ordinary  observer  social  agen- 
cies seem  to  occupy  a  very  subordinate  place,  it  is  surprising  to 
find  how  many  different  organizations  are  touching  upon  some 
phase  of  welfare  work.  Within  recent  years  there  has  been  a 
rapid  development  of  private  social  agencies,  each  sponsored  by 
a  group  of  people  whose  chief  interest  is  centered  upon  a 
definite  social  problem.  Along  with  this  growth  of  private 
agencies  there  has  been  a  tendency  for  the  government  to  accept 
increasing  responsibility  for  the  welfare  of  its  citizens,  a  move- 
ment which  in  this  State  has  culminated  in  provision  for  certain 
governmental  activities  carried  on  in  each  county  under  the  direc- 
tion of  the  department  of  public  welfare.  In  addition  to  these 
formally  organized  public  and  private  social  agencies,  there  is 
a  large  number  of  other  organizations — civic,  fraternal,  religious, 
educational,  and  economic — that  place  considerable  emphasis 
on  social  aspects  of  their  work  and  thereby  take  their  place 
among  the  multitude  of  agencies  at  work  in  the  field  of  social 
betterment. 

As  a  result  of  these  extremely  varied  and  frequently  unrelated 
attacks  on  social  problems,  it  has  become  almost  impossible  in 
many  instances  for  a  city  to  measure  accurately  what  its  citi- 
zens are  accomplishing  in  the  field  of  social  welfare.  Whether 
or  not  there  is  duplication  of  effort  or  neglect  of  important 
activities  is  not  readily  apparent.  In  too  many  cities  social 
welfare  work  has  developed  in  a  hit-and-miss  fashion  and  not 
as  a  part  of  a  well  thought  out  plan  of  community  betterment. 
Certain  problems,  because  of  their  nature,  attract  public  attention, 
and  agencies  to  deal  with  them  are  promptly  organized.  Other 
problems  may  be  less  spectacular  and  consequently  tend  to  be 
overlooked  or  at  least  fail  to  receive  adequate  attention.  The 
difficulty  is  that  no  group  of  people  has  been  charged  with  respon- 
sibility for  looking  at  the  entire  city  or  community  and  working 
out  a  comprehensive  welfare  program  designed  to  meet  the  whole 
situation. 

As  one  step  toward  a  more  unified  and  better  correlated  attack 
on  social  problems,  there  is  being  organized  in  many  cities  what 
is  usually  called  a  community  council  or  council  of  social 
agencies.     This  is  not  an  attempt  to  foist  upon  the  community 


1i 


I 

II 


I 


108 


Attainable  Standards  in  Municipal  Pboobams 


an  additional  agency  with  its  demands  for  the  support  of  the 
people.  iN'either  is  it  an  effort  to  centralize  social  welfare  work 
by  doing  away  with  individual  agencies.  On  the  contrary  it 
is  simply  a  device  for  gathering  the  specialized  agencies  into  a 
cooperative  movement  that  will  conserve  their  necessary  freedom 
and  at  the  same  time  make  joint  action  possible. . 

A  community  council  is  made  up  of  the  official  represen- 
tatives of  all  local  agencies  engaged  in  any  phase  of  social  welfare 
work.  Usually  it  is  made  even  more  widely  representative  of 
all  the  interests  in  the  city  by  adding  to  its  membership  several 
members  at  large  who  represent  the  community  as  a  whole. 
Executive  heads  of  certain  city  and  county  departments,  such 
as  the  health  officer,  public  health  nurse,  county  superintendent 
of  public  welfare,  farm  and  home  demonstration  agents,  and 
superintendent  of  schools  are  ex  officio  members  of  the  Council. 

It  is  obvious  that  such  an  organization  provides  in  the  most 
effective  way  the  machinery  needed  for  general  oversight  of  the 
entire  welfare  work  of  the  community.  Its  membership  is  com- 
posed of  those  best  qualified  for  leadership  in  this  field.  Every 
individual  agency  is  officially  represented  and  has  the  opportunity 
of  interpreting  its  work  to  other  members  of  the  council.  There 
is  no  need  to  fear  that  the  council  will  get  into  the  hands  of  an 
outstanding  group  desirous  of  dictating  social  policies,  for  its  mem- 
bership is  made  up  of  officially  designated  representatives  of  the 
different  agencies. 

The    community    council    thus    becomes    the    organization    to 
which  the  people  can  look  for  leadership  in  their  wider  plans 
for  community  betterment.     If  there  is  any  question  about  the 
duplication  of  work  among  agencies,  as  for  instance  among  those 
engaged  in   relief  work,   the  community   council   is   qualified   to 
study  the  situation  and  pass  judgment  upon  it.    If  the  city  needs 
better    recreational   facilities,   the   community  council   can   take 
steps  to  bring  about  the  organization  of  an   agency  interested 
in  recreation  or  ask  existing  agencies  to  enlarge  their  program 
to  meet  this  need.     The  important  thing  is  that  the  community 
council  provides  a  group  of  influential  and  well  qualified  people 
whose  first  thought  is  not  the  promotion  of  any  particular  agency 
but  rather  the  welfare  of  the  whole  city.     Their  duty  is  to  see 
the  city  with  all  its  needs  and  resources  and  then  work  out  a 
comprehensive    program    in    which    each    agency    will    find    its 
appropriate  part. 

A  large  part  of  the  work  of  the  community  council  is  carried 
on  through  its  special  and  standing  committees  whose  member- 


Univeesity  op  ITobth  Caeolina 


109 


ship  is  made  up  of  those  actively  interested  in  the  different 
problems  that  need  consideration.  Through  this  plan  of  com- 
mittee organization  there  is  at  once  brought  together  the  people 
working  in  similar  fields  who  need  the  opportunity  for  an  inter- 
change of  opinions  and  plans  in  oider  to  avoid  misunderstanding 
and  friction.  Suppose,  for  instance,  the  problem  of  juvenile 
delinquency  is  made  the  subject  of  investigation  by  the  commu- 
nity council.  A  conmiittee  to  study  this  subject  is  appointed 
and  its  membership  will  consist  of  represemtatives  from  the 
department  of  public  welfare,  the  juvenile  court,  the  schools,  the 
churches,  the  recreational  agencies,  rotary  club,  and  any  other 
organization  whose  program  gives  them  a  definite  interest  in 
this  field.  The  simple  meeting  together  of  such  a  group  as  this, 
means  a  step  forward  in  a  mutual  understanding  of  what  is 
being  done  and  cannot  help  but  further  the  coordination  of  their 
varied  activities.  When  their  report  is  made  to  the  community 
council,  opportunity  is  afforded  this  larger  group  to  estimate 
this  work  from  the  viewpoint  of  the  whole  community  and  to 
recommend  whatever  adjustments  or  enlargements  of  the  pro- 
grams of  individual  agencies  may  seem  to  be  advisable.  Any 
formal  action  of  the  community  council  in  such  a  matter  as 
this,  is  of  course  purely  advisory  and  is  not  binding  upon  the 
individual  agencies  until  formally  approved  by  their  boards  of 
directors.  There  is  thus  no  danger  of  the  community  council 
becoming  a  super-agency  with  power  to  exert  arbitrary  authority. 
Its  decisions  will,  however,  have  great  influence  and  rightly  so, 
for  the  community  council  when  properly  organized,  is  repre- 
sentative of  the  best  social  thought  of  the  city. 

The  community  council  as  thus  outlined  is  not  an  adminis- 
trative body.  Its  chief  task  is  the  formulation  of  a  comprehensive 
program  for  the  whole  conununity  and  the  coordination  of  the 
activities  of  the  different  agencies  so  that  all  parts  of  the  pro- 
gram may  be  carried  forward  most  smoothly  and  effectively. 
This  work,  except  in  the  largest  cities,  does  not  require  the 
services  of  a  paid  executive.  The  council,  therefore,  does  not 
need  financial  support.  Through  its  committees  a  large  share 
of  its  work  is  done  and  any  clerical  or  executive  help  they  need 
can  readily  be  supplied  by  the  different  agencies. 

In  some  places  the  community  council  goes  a  step  beyond  its 
customary  coordinating  function  and  accepts  responsibility  for 
financing  those  agencies  within  the  council  that  desire  to  coop- 
operate  in  a  joint  budget  plan.  When  this  is  done,  the  council 
is  generally  known  as  a  financial  federation,  a  type  of  organi- 


( 


II 


f 


110       Attaiwabm  Stamdabds  in  MuNioiPAi,  Pboobams 

zation  that  has  proved  very  successful  in  many  of  the  lanrest 

tZJ^^  '^T^  ^""^  ^"'"'''^''»  federation^  lels  co3n 
A  tT^T  ?T'  ^f  T  ^^'^  ^«"  ^  "'J'^Pted  to  their  needs. 
f1;J  kV  ^!*  **"■  ""  *''^  *««""'««  tliat  solicit  support  from 
fZni"''  ""^^ooncerted  annual  drive  for  funds  u^ally  mX 
t;„n  n?^  weal  to  the  business  man  who  welcomes  the  applica! 
™u       "'"'^f''  ^'''i"T  "'^*l""ls  *o  the  administration  of  social 

ilSrrthr/unds^:/°f  ^''^'^^^^  ^"'^''''^^  <=--"  that  ad" £ 
overtW  ^"°^V  ?^  ^*«  constituent  agencies  has  greater  control 

to  the  work  of  f  *H- "  r""'  *^  •""^'"'"  *'''''  '™it«  its  efforts 
^o^tflT         of   coordination   alone.     In   the   minds   of   many 

^Pnlti  ^T°*  *^°'**''"'y  '"^""^  fi^'^^eial  federations  of  social 
agencies  marks  a  new  era  in  social  welfare  work  and  will  do 

rd^nt^rLTuencl^'"  *"  ^''^"^*''^''  ^^^^  -^--»--  -^ 

wprnruM  becbeatiojtal  requirements 

OF  SMALL  TOWNS  AND  VILLAGES 

E.  C.     LiiojEMAN,  Professor  of  Economics  and  Sociology.  North 
Carolina  State   College  for  Women 

cwSfiftv  ?r"-}-  '""^^  "f  /"•''«««  i-^l^-le  population 
Clusters  of  fifty  families  or  five  hundred  people  and  all  the  inter- 

AilV*"^',"P  '^"  P^P"'"''*"'  "^  »^«  ^^d  families  or  five 

?oZ«  ?1,^'°P  u.  ^"^  °'''°-^  '"^^  ^'*1'«  tl'is  elassification  will 
possess  the  wealth  necessary  to  maintain  a  separate  civic  depart- 
ment devoted  to  the  promotion  of  recreation.  The  following 
recommendations  are  based  upon  the  above  considerations  ^ 

I. 
£qiilpment 

Every  village  and  towii  should  have  at  least  one  playground 
for  younger  children.  This  space  should  have  an  aref  of  a 
minimum   of  one-eighth   of  an   acre.      Playgrounds   for   smaller 

S  r^'^"  ?  ^ri^'.  '^'^'  '''^  '^'  sun;  if  trees  are  Lt"S 
able,  artificially  shaded  spots  should  be  provided.  An  eighth  of 
an  acre  playground  should  have  at  least  four  sand-boxef  each 
capable  of  accommodating  six  to  ten  children.     The  sand  VonM 

uJj'T^  f  ^f  if^r  ""^^^^^  '^^"^^  P^^^^«  ^^  atretic  park  suit- 
able for  baseball,  football,   field  hockey,  basket-ball   and  volley 

woLn  «1^  '^!r  ''  *^  ^//tili^ed  by  boys  and  girls  and  men  and 
women  above  the  age  of  fourteen. 


K. 


Univbesity  of  North  Cabolika 


111 


Each  village  and  town  should  provide  an  indoor  place  for  the 
following  types  of  recreation :  indoor  baseball,  basketball,  voUey 
ball,  group  games,  and  gymnastics.  The  minimum  floor  space 
should  be  40  by  60  feet.  The  flooring  should  be  of  hard  wood. 
Such  room  or  hall  should  provide  bathing  facilities  for  persons 
taking  part  in  games. 

II. 

Sapenrision 

The  responsibility  of  promoting  a  constructive  recreation  pro- 
gram for  the  younger  children  of  a  smaU  town  sliould  r^t 
with  the  school  authorities.  One  teacher  of  each  school  should  be 
employed  with  the  thought  in  mind  of  utilizing  a  portion  of  her 
or  his  time  in  play  and  recreation  supervision.  Such  persons 
should  be  selected  because  of  their  training  and  interest  m 
recreation. 

The  school  authorities  will  be  greatly  helped  in  their  recreational 
efforts,  if  the  town  supports  them  by  means  of  a  voluntary  play- 
ground and  recreational  association.  This  association  may  assist 
in  creating  sentiment  favorable  for  organized  play,  may  assist  in 
financing  the  program,  may  assist  in  securing  leadership  for  sum- 
mer work,  and  may  assist  in  training  local,  resident  leadership. 

Small  towns  should  avail  themselves  of  all  advice  and  assist- 
ance from  such  agencies  as  the  county  Y.  M.  C.  A.,  Y.  W.  C.  A., 
Boy  Scouts,  Girl  Scouts,  etc.,  in  supplying  the  recreational 
needs  of  their  various  age  groups.  These  agencies  should  also  be 
enlisted  in  the  program  of  training  local  leaders. 

Competitive  teams  in  baseball,  basket-ball,  and  football  should 
not  be  organized  unless  there  is  some  trained  person  m  the  com- 
munity qualified  to  train  the  players. 

The  supervision  of  the  playgrounds  for  younger  children  should 
be  in  the  hands  of  persons  who  have  been  carefully  selected  for 
their  ability  and  for  their  understanding  of  child  life. 

Best  results  from  a  recreation  program  are  realized  when  the 
supervisors  are  paid  for  their  work.  Volunteer  leadership  should 
be  used  as  frequently  as  possible,  but  the  steady,  year-round 
program  needs  the  attention  of  persons  who  take  professional  as 
well  as  sympathetic  interest  in  the  task. 

The  assistance  of  national  and  state  agencies  should  be  fully 
utilized.  Such  agencies  as  the  Playground  and  Recreation  Asso- 
ciation of  America,  the  North  Carolina  Community  bervice  ±Ju- 
reau,  etc.,  should  be  enlisted. 


ni_  ■ 


112        Attainable  Standards  in  Municipal  Pbogbams 

III. 

Finances 

Small  towns  should  finance  their  recreational  programs  from 
three  sources :  the  public  school  hoard,  the  town  or  city  govern- 
ment, and  by  private  subscriptions.  After  permanent  equipment 
has  been  provided  the  minimum  amount  necessary  for  promoting 
an  adequate  recreation  program  should  ibe  $500  per  y^ar  for  a 
village  of  500  population  and  $2000  per  year  for  a  town  of  5,000 
population.  About  three-fourths  of  these  amounts  should  be 
expended  for  supervision  and  one-fourth  for  renewing  equipment 
and  paraphernalia. 


MDTIMUlf  ATTAINABLE  STANDARDS  IN  HIGH  SCHOOL  EDUCA- 
TION FOB  SMALL  TOWNS  AND  VILLAGES 

N.  W.  Wai^kbb,  Acting  Dean  of  the  School  of  Education 

There  is  no  valid  reason  why  every  small  town  and  village  of 
from  ^Ye  hundred  to  twenty-five  hundred  inhabitants  should  not 
have  good  high  school  facilities  for  its  younger  people.  There 
are  obstacles  in  the  way,  to  be  sure,  and  I  do  not  discount  their  in- 
fluence in  retarding  high  school  progress,  but  they  can  be  over- 
come under  capable  leadership.  To  be  capable,  leadership  must 
be  intelligent  and  sympathetic,  and  possessed  of  vision,  patience, 
and  determination. 

As  a  practical  working  definition  of  "good  high  school  facili- 
ties," which  for  the  purpose  of  this  paper  may  be  implied  in  "mini- 
mum attainable  standards,"  let  us  consider  the  following  things 
as  necessary: 

1.  A  Four  Year  Curriculum.  I  mean  four  years  of  good  in- 
struction of  from  32  to  36  weeks  to  the  year,  based  upon  a  seven- 
year  elementary  school  curriculum.  (Personally  I  should  greatly 
prefer  the  6-3-3  plan  of  organization,  but  I  am  taking  the  7-4 

2.  Teaching  Force:  Qualifications  and  Pay.  There  should  be 
a  teaching  force  of,  say,  six  teachers,  all  well  educated  (graduates 
of  standard  colleges),  specially  trained  for  the  particular  work 
they  are  expected  to  do,  and  paid  salaries  sufficient  to  enable  them 
to  live  somewhat  above  the  "pain  economy"  level. 

3.  The  School  Plant.  (1)  Building.  There  should  be  a  good 
building  planned  and  constructed  in  accordance  with  the  demands 
of  modem  school  architecture  and  in  accordance  with  local  needs 
and   purposes.     Its  heating,   lighting,   ventilation,    and   sanitary 


i% 


University  of  ITobth  Carolina 


113 


arrangements  should  conform  to  scientific  standards.  There  must 
be  classrooms  sufficient  for  the  number  of  pupils  to  be  educated ; 
laboratories  for  home  economics,  natural  science  and  agriculture, 
all  equipped  for  the  specific  uses  to  which  they  are  to  be  put ;  an 
auditorium  of  capacity  sufficient  to  accommodate  the  school  and 
half  the  community;  a  library  and  reading  room  in  which  there 
should  be  from  1000  to  2500  volumes  of  good  literature  and  refer- 
ence books,  and  some  of  the  standard  magazines;  teachers'  rest 
room;  and  gymnasium.  (2)  Playground  and  athletic  field.  Therj 
should  be  ample  space  for  playgrounds  and  athletic  field,  and  those 
should  be  equipped  with  such  apparatus  as  is  necessary  for  the 
different  games  and  sports  usually  participated  in  by  high  s^Jiool 
boys  and  girls. 

3.  The  Program  of  Studies.  This  should  be  determined  by  the 
interests,  aptitudes,  and  abilities  of  the  pupils  themselves,  and  the 
demands  of  the  social  order  in  which  they  are  soon  to  become  more 
active  participants.  These  may  be  subsumed  under  three  groups 
of  fundamental  aims  of  secondary  education.  (1)  The  "Social- 
Civic-Aim,"  meaning  the  preparation  of  the  individual  as  a  pros- 
pective citizen  and  cooperating  member  of  society;  (2)  the  "Eco- 
nomic-Vocational Aim,"  meaning  the  preparation  of  the  individual 
as  a  prospective  worker  and  producer;  (3)  the  "Individualistic- 
Avocational  Aim,"  meaning  the  preparation  of  the  individual  for 
those  activities  which,  though  involving  individual  action,  the 
utilization  of  leisure,  and  the  development  of  personality,  are  of 
supreme  importance  to  the  welfare  of  society. 

The  six  teachers  should  be  chosen  for  their  ability  to  give 
sound  instruction  in  the  following  branches :  one  for  English ;  one 
for  social  studies  (including  history,  community  civics,  elementary 
economics,  and  elementary  social  problems) ;  one  for  natural 
science  and  mathematics;  one  for  home  economics  including  do- 
mestic science  and  domestic  art) ;  one  for  agriculture,and  one  for 
foreign  language.  There  are  other  subjects  that  should  not  be 
overlooked,  to  be  sure,  such  as  music  and  physical  education,  for 
example.  If  additional  teachers  can  not  be  provided  for  them, 
provision  should  certainly  be  made  for  them  in  the  organization 
of  the  program  of  studies  and  in  the  selection  of  the  teaching  force. 

!N"ow,  it  will  be  objected  by  some  that  to  support  the  sort  of 
high  school  that  I  have  in  mind  would  put  too  great  a  burden  on 
the  small  town  or  village.  True  it  might,  and  would  in  those 
small  towns  and  villages  so  selfishly  inclined  that  they  cannot  see 
their  relation  to  the  surrounding  country.  Such  places  will  con- 
8 


114         Attainable  Standaeds  in  Municipal  Peoorams 

tinue  to  struggle  along,  until  they  are  shocked  out  of  their  com- 
placency, with  the  most  meagre  sort  of  high  school  facilities — 
denying  to  their  own  boys  and  girls  good  high  school  advantages 
because  of  the  fact  that  they  cannot  appreciate  the  vital  social 
and  civic  relationships  their  educational  interests  bear  to  those 
of  the  surrounding  country  and  to  those  of  the  county. 

This  means  that  if  small  towns  and  villages  are  to  have  good 
high  school  facilities  for  their  own  children,  they  must  lose  their 
educational  identity  in  order  to  find  it.  That  is  to  say,  the  county 
is  the  logical  unit  of  organization,  supervision,  control,  and  finan- 
cial support.  The  greatest  of  these,  for  most  places,  is  financial 
support.  In  order  to  have  financial  support  sufficient  to  do  the 
things  I  have  indicated,  there  must  be  students  enough  enrolled 
to  require  such  a  teaching  force  as  I  have  indicated  When  the 
small  towns  and  villages  see  their  high  school  problems  in  this 
light  and  are  willing  to  cooperate  in  the  manner  implied,  these 
standards,  under  proper  educational  direction  of  the  capable  super- 
intendent of  schools,  will  become  attainable,  and  no  smaU  town 
or  village  that  is  civic  minded  and  progressive  should  be  satisfied 
with  anything  less. 


Two  new  Bulletins  relating  to  community  activities  have  just 
been  issued  by  the  University.  They  are:  "The  Rural  Play- 
ground" and  "The  Parent-Teacher  Association,"  both  by  Pro- 
fessor Harold  D.  Meyer  of  The  School  of  Public  Welfare. 

"Community  Progress"  published  bi-monthly  by  the  N'orth 
Carolina  College  for  Women  and  edited  by  Professor  E.  C.  Linde- 
man  is  a  standard  of  excellence  in  its  field  and  is  proving  of  great 
value  to  many  readers. 


i4-    ^ 


< 


CHAPTER  VI 


THE  COUNTY  AND  MUNICIPALITY 


COUNTY  GOVERNMENT  AND  PUBLIC  EDUCATION 

Hon.  E.  C.  Brooks,  State  Superintendent  of  Public  Instruction 

The  continued  growth  of  our  public  school  system  depends  upon 
efficient  county  government.  It  is  a  fact  easily  demonstrated  that 
in  those  counties  which  have  had  the  benefits  of  good,  progressive 
government  for  several  years  the  public  school  system,  as  a  rule, 
is  better  organized  and  more  efficiently  administered  than  in 
counties  poorly  governed.     The  cause  is  not  hard  to  discover. 

The  county  is  the  unit  of  self  government.  The  relation  of  the 
State  to  it  is  one  of  supervision  and  assistance.  The  county  is 
likewise  the  unit  of  educational  administration  and  the  relation 
of  the  State  to  the  public  school  system  is  one  of  supervision  and 
assistance.  The  board  of  county  commissioners  is  the  governing 
body  of  the  county  and  to  this  body  the  public  schools  must  like- 
wise look  for  support.  Therefore,  since  the  unit  of  government 
and  of  educational  administration  are  one  and  the  same  whatever 
affects  general  county  government  will  also  affect  the  public 
school  system,  and  frequently  defects  in  the  latter  are  easily 
traceable  to  the  same  defects  that  run  through  the  whole  county 
government. 

The  counties  are  not  able  to  govern  themselves  and  promote  the 
progress  of  the  people  without  State  supervision  and  assistance. 
However,  the  State  through  a  failure  to  exercise  proper  super- 
vision encourages  carelessness  and  waste  in  the  collection  and  ex- 
penditure of  public  funds.  Such  defects  inevitably  breed  discon- 
tent and  suspicion  among  the  people.  This  is  true  whether  this 
neglect  relates  to  the  administration  of  justice,  the  building  of 
roads,  the  development  of  our  natural  resources  or  the  education 
of  the  youth. 

It  is  my  purpose  to  specify  wherein  county  government  is  de- 
fective and  suggest  certain  remedies. 

The  State  Department  of  Education  has  made  a  study  of  county 
government  in  several  counties  with  special  reference  to  collect- 


i  ' 


r 


116        Attainable  Standards  in  Municipal  Programs 

ing  and  expending  public  funds.  We  were  led  to  this  study  by  ob- 
serving certain  facts  while  administering  the  State  Public  School 
Fund  for  the  year  1919-20. 

One  county  reported  that  all  but  about  2%  of  the  gross  amount 
of  the  taxes  were  collected.  It  was  easy  to  see  that  the  law  was 
observed  strictly  in  the  expenditure  o'  the  funds.  This  county 
is  well  governed.  Another  county  not  many  miles  away  showed  a 
loss  of  about  15%  and  it  was  difficult  to  tell  whether  the  public 
schools  had  to  their  credit  a  surplus  or  a  deficit.  However,  it 
was  certain  that  this  county  was  each  year  running  behind,  and 
many  of  its  accounts  were  unpaid.  If  these  two  counties  re- 
ceive support  from  the  State  according  to  their  apparent  needs, 
the  county  that  is  least  efficient  in  government  would  be  bene- 
fited most  from  State  support. 

You  will  please  keep  in  mind  that  this  study  was  made  not  at 
the  close  of  the  school  year  1920-21,  but  at  the  close  of  the  year 
1919-20,  the  most  prosperous  year  in  our  history,  and  a  year  in 
which  it  was  comparatively  easy  to  collect  taxes. 

"We  examined  the  records  of  a  number  of  counties  for  the  pur- 
pose of  discovering  the  cause  of  this  difference  in  the  number  of 
delinquent  tax  payers.  While  making  this  study  we  discovered 
defects,  almost  wholly  the  result  of  ignorance  and  carelessness, 
that  ought  to  be  corrected.  Therefore,  what  I  shall  report  here 
is  not  said  in  a  spirit  of  general  criticism  and  fault  fiinding,  but 
for  the  purpose  of  calling  the  attention  of  patriotic  citizens  to 
glaring  defects  that  can  be  corrected  in  every  county,  and  must  be 
corrected  if  we  expect  to  secure  the  greatest  benefits  ^rom  the  ex- 
penditure of  large  and  still  larger  sums  for  public  improvement, 
and  hold  the  confidence  and  support  of  the  people  in  the  pro- 
gressive program  that  is  now  remaking  the  State.  These  defects 
are — 

1.  The  county  officials  in  many  counties  do  not  know  the  cost 
of  county  government.  They  do  not  know  the  size  of  the  bonded 
indebtedness  nor  the  cost  of  the  several  departments.  As  a  result, 
they  do  not  know  what  tax  rates  to  levy  to  meet  the  full  legitimate 
expenses  of  the  county.  As  a  rule,  they  are  pledged  to  keep  taxes 
down.  Therefore,  the  authorities  try  to  curtail  expenses  without 
really  knowing  the  financial  condition  of  the  county  or  how  to 
economize. 

2.  The  number  of  delinquent  tax  payers  in  many  counties  is 
entirely  too  large.  The  leakage  here  is  great,  and  it  is  almost 
entirely  attributable  to  poor  government.    As  a  result,  it  becomes 


University  op  ITorth  Carolina 


117 


necessary  for  the  officials  to  increase  the  tax  rates  in  order  to 
provide  for  a  shortage  that  is  partly  inexcusable.  Good  govern- 
ment in  this  respect  would  result  in  a  saving  of  public  funds,  and 
at  the  same  time  it  would  increase  the  rate  of  progress. 

3.  The  fines  imposed  by  magistrates  and  the  fines,  forfeitures 
and  penalties  of  the  towns  and  counties  are  not  always  properly 
accounted  for  and  applied  in  accordance  with  law. 

4.  The  funds  collected  are  not  segregated  in  accordance  with 
law.  Some  departments,  as  a  result,  run  far  short  of  their  Inti- 
mate needs,  while  others  receive  more  than  their  share  of  the 
funds.  Therefore,  it  becomes  necessary  to  borrow  for  some  de- 
partments because  of  extravagance  or  liberal  expenditure  in  other 
departments.  Such  unbusiness  like  methods  will  cause  an  in- 
crease in  the  bonded  indebtedness  or  the  taxes  for  the  succeeding 
year  must  be  raised  to  meet  the  deficit. 

5.  The  special  local  taxes  in  many  counties  are  not  properly 
levied,  collected  and  disbursed.  The  people  have  a  fine  enthu- 
siasm for  voting  local  taxes  for  the  improvement  of  roads  and 
schools.  This  enthusiasm  should  not  be  destroyed  because  of  care- 
lessness and  inefficiency  in  handling  local  funds.  In  some  counties 
it  was  impossible  for  us  to  find  any  record  of  the  local  taxes 
levied,  the  amount  of  money  collected  and  how  it  was  expended. 
Moreover,  we  have  positive  evidence  that  some  of  the  larger  tax 
payers  escaped  this  tax  altogether.  For  example;  in  one  local 
tax  district  the  Postal  Telegraph  Company,  the  Pullman  Car 
Company,  the  American  Telephone  Company,  The  Southern  Bell 
Telephone  Company  and  the  Western  Union  Telegraph  Company, 
all  were  entitled  to  pay  taxes  but  neither  had  paid  a  cent  of  taxes 
in  some  years.  They  were  not  even  on  the  tax  books.  This,  of 
course,  was  pure  carelessness.  But  the  rate  of  taxes  had  to  be 
increased  because  of  this  carelessness. 

6.  Finally  it  is  very  evident  that  in  most  counties  there  is  not 
enough  unity  of  management  to  fix  responsibility  and  insure  effi- 
ciency. In  certain  counties  the  officials  begged  us  to  show  them 
how  to  organize  the  business  so  that  the  people^s  money  might  be 
safeguarded.  This  is  an  example  of  ignorance  pathetically  call- 
ing for  expert  State  supervision. 

In  pointing  out  these  defects  we  are  not  giving  many  people 
of  the  State  anything  new  or  sensational.  The  number  of  letters 
received  and  the  newspaper  comments  since  I  first  called  attention 
publicly  to  them  are  sufficient  evidence  that  these  defects  have 
been  known  for  some  time  by  numbers  of  people  in  counties  where 


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118        Attainable  Standabds  in  Municipal  Fboobams 

they  exist.    Therefore,  we  sheuld  be  considering  seriously  effective 
remedies  and  should  act  vigorously  and  promptly. 

The  first  step  to  take,  it  seems  to  me,  is  to  arouse  the  public 
conscience  through  publicity  that  will  cause  the  people  to  demand 
better  government.  What  do  you  suppose  would  be  the  effect  on 
the  people  of  many  counties  if  the  exact  condition  of  the  business 
were  published  in  detail  in  this  week's  papers  and  in  terms  that 
the  people  could  understand?  Perhaps  it  would  be  better  not 
to  go  into  details  until  the  officials  have  had  time  to  get  their  af- 
fairs straight.  But  they  must  be  made  straight  or  the  people  will 
become  disgusted  and  cease  to  support  the  progressive  measures 
that  are  now  registering  a  new  era  in  the  State.  The  people 
should  know  who  are  excused  from  paying  taxes  and  how  every 
dollar  of  the  money  has  been  spent.  The  best  government  is  now 
found  in  those  counties  whose  accounts  are  well  audited  and  pub- 
lished periodically.  County  auditors  have  given  business-like 
methods  to  many  counties  and  saved  the  people  thousands  of 
dollars,  and  given  them  confidence  in  the  business  management. 

In  the  second  place.  State  supervision  should  be  sufficient  to 
protect  the  public,  and  to  unify  county  management  so  as  to 
avoid  the  multiplication  of  independent  officials.  The  State  bank 
examiner  closes  a  bank  as  soon  as  it  reaches  the  danger  line. 
County  officials  should  be  required  to  meet  a  similar  standard 
of  safety.  A  system  of  audits  that  will  exhibit  these  defects 
should  be  uniform  and  made  under  some  responsible  head  like 
the  State  Auditor.  Moreover,  whenever  it  is  made  to  appear  that 
county  officials  are  incompetent  and  are  failing  to  meet  a  given 
standard  of  efficiency,  they  should  be  removed  and  temporary  ap- 
pointments should  be  made  by  some  responsible  county  authority 
until  the  people  have  a  chance  again  to  elect  their  successors. 
"New  and  inexperienced  officials  should  be  given  a  reasonable  time 
in  which  to  qualify  for  their  duties  and  the  State  should  give 
them  all  the  help  possible.  But  they  should  qualify.  It  is  unfair 
to  a  sheriff,  for  example,  for  the  commissioners  to  allow  his  books 
to  run  from  year  to  year  without  a  complete  settlement,  as  is 
sometimes  the  case,  and  then  after  he  becomes  hopelessly  involved 
due  to  a  failure  to  settle  annually,  his  whole  career  is  destroyed 
and  his  personal  fortunes  wrecked  as  a  result.  In  one  county  a 
sheriff,  owing  to  poor  book-keeping,  overpaid  his  accounts  by  more 
than  a  thousand  dollars  and  he  was  wholly  ignorant  of  the  mis- 
take until  his  attention  was  called  to  it.  He  had  settled  for  the 
dog  tax  twice.  The  State  owes  it  to  the  individual  and  to  the 
public  to  see  that  both  are  protected  from  incompetent  officials. 


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Finally  our  high  schools,  colleges  and  university,  should  give 
specific  instruction  in  local  self-government.  They  do  teach  the 
history  and  the  forms  of  government,  but  students  receive  too 
little  instruction  in  local  self-government.  There  will  be  perhaps 
40,000  pupils  enrolled  in  the  high  schools  and  15,000  enrolled 
in  our  higher  institutions  this  year.  These  within  a  few  years 
will  be  the  State's  lenders,  and  yet  they  receive  too  little  instruc- 
tion in  the  greatest  lesson  that  an  individual  or  a  group  of 
individuals  ever  learned — namely,  how  to  govern  properly. 

What  is  good  government  among  students,  and  how  can  they 
be  taught  to  govern  themselves  properly?  How  can  they  be  led 
to  detect  weaknesses  and  defects  in  government? 

What  is  a  well  governed  town  or  county  and  where  can  it  be 
found?  Is  the  county  or  city  government  in  which  the  institu- 
tion is  located  well  governed?  What  are  its  defects?  Are  the 
public  funds  safeguarded  and  wisely  spent?  If  our  colleges  and 
university  would  give  special  attention  to  local  government  and 
fifteen  thousand  students  were  taught  annually  to  know  what  i* 
good  county  or  city  government,  they  would  be,  within  a  few 
years,  the  strongest  factors  in  preserving  local  self-government 
and  in  checking  the  drift  toward  centralization  of  power  in  the 
state  and  the  nation. 

The  very  first  word  in  education  should  be  government — 
self-government,  respect  for  law  and  order,  and  how  to  cooperate 
in  producing  a  self-governing  people.  We  have  groups  of  people 
organizing  into  quasi  governmental  bodies — manufacturers,  com- 
mercial institutions,  laborers,  farmers,  professional  men  and 
women.  This  tendency  to  organize  for  local  self-government  is 
a  natural  social  instinct.  But  the  inclination  of  some  is  to 
elevate  the  rule  of  their  organization  above  the  law  of  the  county 
or  the  State.  This  is  perilously  near  sovietism.  The  county  and 
the  State  should  rise  above  all,  and  all  should  cooperate  to  this 
end.    The  spirit  of  democracy  can  not  thrive  in  any  other  way. 

ATTAMTABLE  STAKDABDS  IN  PUBLIC  WELFABE 

Mrs  Clabbncb  A.  Johnson,  State  Commissioner  of  Public  Welfare 

"That  all  men  are  created  equal"  is  fallacious  theory  that 
has  influenced  and  permeated  government  to  the  detriment  of 
human  ;progre98.     Transmissible   disease   exists    and   is   handed 


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120        Attainable  Standards  in  Municipal  Programs 

down  from  generation  to  generation;  the  mentally  unfit  continue 
to  reproduce  their  kind  with  the  result  that  a  large  per  cent  of 
our  population  is  born  with  fundamental  inequalities  which  make 
a  vast  difference  between  children  who  come  into  the  world  with 
tainted  blood  or  lack  of  mental  ability,  and  clean-blooded,  normal 
individuals.  Moreover,  the  facilities  for  life  equipment  in  the 
way  of  educational  advantages,  protection  from  child  labor, 
opportunities  for  health,  etc.,  for  every  individual  have  been 
obviously  unequal. 

Recognition  of  these  facts  has  resulted  in  Korth  Carolina's 
making  an  honest  effort  to  give  to  all  citizens  more  equal  oppor- 
tunities by  incorporating  into  government  certain  necessary  pro- 
visions for  the  protection  and  care  of  the  weak  and  handicapped, 
and  which  will  also  provide  for  normal  people  an  increased 
capacity  for  a  more  abundant  life.  Hereafter  the  State  is  to 
make  her  chief  objective  a  human  one  rather  than  a  mechanical 
one,  and  acknowledge  her  obligation  to  be  pitiful  and  kind. 
Legislation  has  been  shot  through  with  philanthropy,  and  into 
the  warp  and  woof  of  democracy  has  been  woven  the  golden 
thread  of  a  great  experiment  in  justice  to  all  regardless  of  race 
or  creed,  the  North  Carolina  Plan  of  Public  Welfare— a  standard 
service  of  democracy  to  the  people. 

For  the  interpretation  of  this  plan  of  pioneer  governmental 
social  service  into  terms  of  public  understanding,  and  for  the 
actual  adjusting  of  philanthropic  legislation  to  human  needs 
certain  machinery  is  necessary,  and  this  is  found  in  the  State 
Board  of  Charities  and  Public  Welfare  with  the  various  rami- 
fications of  county  boards  and  county  welfare  officers  affiliated 
with  the  juvenile  courts  and  institutions  for  defectives,  delin- 
quents and  dependents. 

The  legal  authority  for  this  machinery  having  been  found 
fairly  adequate,  our  present  great  concern  is  for  the  quality 
of  the  human  material  in  the  way  of  officials  whose  duty  it 
becomes  to  carry  out  the  law.  It's  probably  easier  to  get  good 
laws  than  it  is  to  put  such  laws  into  operation  for  the  benefit 
of  society,  and  this  becomes  an  individual  problem  of  personality 
and  standards  of  morality. 

At  a  conference  of  county  superintendents  of  public  welfare 
held  at  the  State  University  in  the  summer  of  '21,  a  tentative 


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«     « 


basis  for  standards  for  county  superintendents  was  proposed  as 
follows : 

(The  Zero  point  represents  a  sort  of  minimum  for  carrying 
the  work  with  satisfaction  to  the  cause,  the  country,  and  the 
state.  Above  and  below  the  minimum  or  norm  are  standards 
to  be  reached  on  the  one  hand,  and  from  which  we  want  to 
depart  on  the  other.) 

ABOVE 

4.  Continued  experience,  participation  in  cooperative  efforts, 
and  outstanding  service  to  county  and  state. 

3.  Continued  experience,  participation  in  cooperative  efforts, 
and  outstanding  service  to  county. 

2.  Continued  experience  with  at  least  one  year  of  special 
training. 

1.  Continued  experience  with  at  least  two  summer  sessions 
of  special  training. 

MINIMUM 

0.  Full  time;   unqualified  belief  in  the  work;   some  special 
training  and  experience  for  the  work. 


BELOW 

1.  Part  time;  unqualified  belief  in  the  work;  some  training 
and  experience. 

2.  Full  time,  political  appointment,  no  experience  or  training. 

3.  Part   time,   expediency   appointment;    no    experience   or 
training. 

4.  No  ofilcer  whatsoever. 

Governing  bodies  with  electives  power  (boards  of  education  and 
county  commissioners)  should  carefully  consider  these  standards 
in  the  selection  of  officers.  Dissatisfaction  with  welfare  work 
so  far  has  usually  resulted  from  the  failure  of  officials,  not 
because  the  law  is  inadequate  nor  because  there  is  any  outstand- 
ing weakness  in  the  plan  of  public  welfare. 

The  State  Board  of  Charities  and  Public  Welfare  cooperat- 
ing with  the  University  through  the  School  of  Public  Welfare  is 
charged  with  the  responsibility,  (1)  to  establish  uniform  methods 
of  doing  social  work,  and  (2)  to  supply  a  minimum  fund  of  common 


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Attainable  Standards  in  Municipal  Fboosams 


knowledge  as  the  equipment  of  the  social  worker.  It  is  not 
the  purpose  of  either  agency  to  demand  of  the  worker  more 
than  he  is  able  to  accomplish  or  more  than  the  community  is 
prepared  to  receive,  but  if  we  are  ever  to  be  able  to  collect 
accurate  statistics  of  the  welfare  work  or  to  get  definite  informa- 
tion concerning  the  problems  affecting  the  work — such  as,  for 
instance,  the  nimiber  of  children  who  come  into  the  juvenile 
courts  and  the  causes  which  brought  them  into  the  courts,  children 
found  working  illegally  and  the  number  of  permits  issued  and 
for  what  reason,  amounts  the  counties  are  spending  on  outside 
poor  relief  (or  poor  funds)  and  how  effective  such  relief  is, 
etc., — it  must  be  through  an  uniform  and  systematic  system  of 
record  keeping  and  reporting.  As  to  a  minimum  fund  of  com- 
mon knowledge,  this  is  essential  if  we  are  to  avoid  experimenting 
upon  human  beings,  and  should  include  certain  recognized 
standards  of  child  welfare,  satisfactory  methods  of  social  inves- 
tigation, knowledge  of  juvenile  court  ideals  and  procedure,  and 
probation  work,  relief  giving  as  incidental  to  constructive  social 
work,  etc. 

There  is  one  oflScial  in  this  State  who  by  virtue  of  his  office 
plays  an  important  part  in  the  child  welfare  program — i.e.,  the 
clerk  of  the  Superior  Court  who  is  ex  officio  judge  of  the  county 
juvenile  court.  Clerks  of  the  court  in  ITorth  Carolina  have 
always  had  certain  responsibilities  regarding  minor  and  depend- 
ent children,  and  these  powers  and  responsibilities  have  been 
increased  and  enlarged  by  the  Juvenile  Court  Act  and  now 
include  delinquents.  Clerks  of  the  court  in  North  Carolina  as 
a  whole  are  rendering  effective  service  as  judges  of  the  juvenile 
court.  This  work  has  been  added  to  the  already  rather  arduous 
duties  of  the  clerk  of  the  court  without  consulting  him  as  to 
his  desire  to  do  the  work  or  considering  his  qualifications,  but 
it  is  doubtful  if  there  is  any  other  set  of  officials  in  the  State 
who  without  training  or  experience  in  this  line  of  work  would 
render  better  service.  In  future,  however,  clerks  of  the  court 
in  North  Carolina  should  be  elected  to  office  on  an  equal  basis 
of  their  ability  to  act  as  judges  of  the  juvenile  court  with  that 
ability  to  carry  on  the  business  and  clerical  work  of  the  clerk's 
office. 

North  Carolina  is  a  rural  state  stretching  from  the  mountains 
to  the  coast  composed  of  one  hundred  counties  that  cover  a  large, 
and  in  some  instances  almost  inaccessible,  territory.     Several  of 


Univeesity  of  Noeth  Carolina 


123 


these  counties  have  no  railroad  and  no  newspaper.  To  put  over 
a  state-wide  movement  like  the  plan  of  public  welfare  with  such 
conditions  to  confront  requires  ceaseless  energy,  infinite  patience, 
and  an  unflagging  determination  to  succeed  in  the  face  of  many 
discouragements.  But  with  the  moral  and  understanding  support 
of  many  good  citizens,  it  can  and  will  be  done. 

ATTAINABLE  8TANDABDS  IN  PUBLIC  HEALTH 

•  Dr.  W.  S.  Rankin,  the  State  Health  Officer,  discussed  with 
the  Conference  the  policies  of  the  North  Carolina  State  Board 
of  Health  for  placing  the  county  health  work,  in  which  the  State 
cooperated  and  financially  assisted,  upon  a  cost  basis.  Dr.  Ran- 
kin pointed  out  that  the  two  main  values  of  such  a  system  were 
'(1)  that  it  gave  a  standard  of  measurement  of  the  efficiency  of 
local  health  officers,  which  operated  regardless  of  the  variations  in 
the  size  of  budgets  employed,  or  the  character  of  the  work  pur- 
sued; and  (2)  it  afforded  a  basis  of  State  subsidy  to  counties 
where  the  condition  of  the  subsidy  was  actual  service  rendered, 
and  not  office  holding.  To  those  who  may  be  interested  in  ascer- 
taining the  details  of  the  plan,  as  outlined  by  Dr.  Rankin,  it 
is  suggested  that  they  communicate  direct  with  the  State  Board 
of  Health  for  their  literature  dealing  with  the  general  idea. 

The  complete  set  of  values,  through  which  Dr.  Rankin  sets 
forth  his  attainable  standards  in  Public  Health  work,  may  be 
had  from  his  office.  It  makes  an  epoch  in  the  measurement  of 
social  work  of  any  sort. 


MINIMUM  STANDARDS  FOB  COUNTY  SCHOOL  WOBK 

Edgar  W.  Knight,  Professor  of  Rural  Education,  University  of  North  Carolina 

The  minimum  standards  for  effective  educational  work  of  the 
county  seem  to  be : 

1.  A  larger  unit  of  support  and  direction  than  now  exists 
in  actual  practice.  For  purposes  of  business  administration 
N'orth  Carolina  is  divided  into  counties.  The  county  is  also  the 
natural  unit  for  the  successful  administration  of  public  schools. 
In  theory  at  least  the  county  is  the  educational  unit  now 
in  use  in  ITorth  Carolina,  but  the  form  of  organization  and 
administration  actually  practiced  in  the  State  is  generally  that 
of  the  local  district.    This  unit  of  educational  work  is  under  the 


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124        Attainable  Standards  m  Municipal  Progeams 

control  of  a  local  board  of  trustees  and  loosely  knit  together  in 
the  county  organization.    Too  often  the  work  of  the  local  schtwl 
is  carried  on  with  no  concern  or  interest  beyond  the  district  lines, 
often  with  little  unity  of  purpose  or  conception  of  broad  educa- 
tional policies.     As  a  result,  the  rural  school  often  suffers  with 
ineffective  teachers,  poor  equipment,  and  a  lack  of  helpful  super- 
vision and  direction.    Under  the  practice  of  the  local  district  unit 
a  uniform  system  of  schools  can  not  be  made  to  extend  over  the 
entire  county.    The  organization  and  administration  of  the  school 
work  are  largely  by  locality  which  must  necessarily  remain  one- 
sided in  development.    Such  a  system  is  wasteful  and  antiquated. 
It  needs  to  be  replaced  by  the  county  as  the  unit  of  support, 
organization,  administration,  and  supervision.    All  public  elemen- 
tary and  secondary  schools  and  all  educational  agencies  outside 
a  very  few  of  our  larger  cities  should  be  consolidated  and  coordi- 
nated into  one  system  with  sound  and  adequate  financial  support 
and  expert  business  and  professional  direction,  if  the  rural  child 
of  T^orth  Carolina  is  to  be  guaranteed  the  educational  opportunity 
now  afforded  the  child  of  the  city.     Outside  the  cities  it  seems 
desirable  that  the  smallest  legally  allowable  unit  for  local  taxa- 
tion for  schools  should  be  the  county.     Local  taxation  in  arbitra- 
rily formed  districts,  often  weak  and  small,  should  be  discouraged, 
if  not  prohibited  by  legislation.     Such  a  practice  can  not  longer 
promote  public   educational   progress   or   wholesome   educational 
sentiment,  nor  can  it  longer  be  justified  as  a  temporary  expedient. 
It  encourages  selfishness  and  provincialism. 

2.  A  stronger  county  board  of  educational  control.  Such  a 
board  should  have  powers  and  duties  not  unlike  those  of  the  city 
school  board  and  the  members  should  be  selected  from  the  citi- 
zens at  large,  for  reasonably  long  terms,  and  for  their  recognized 
ability  to  direct  safely  and  adequately  the  important  work  of 
the  rural  schools.  It  would  be  helpful  if  the  State  could  prescribe 
definite  educational  and  business  qualifications  for  membership 
on  the  county  board  of  education. 

3.  A  better  type  of  county  superintendent.  It  can  not  be 
emphasized  too  often  or  too  strongly  that  the  county  superintend- 
ent of  schools  is  strategically  the  most  important  of  all  the  county 
officers.  Potentially  he  is  the  most  influential.  He  bears  to  the 
county  a  relationship  similar  to  that  of  the  state  superintendent 
to  the  State.  He  is  the  central  figure  of  all  public  educational 
agencies  of  the  county  and  his  principal  functions  are  to  initiate, 
establish,  and  maintain  proper  relationships  among  such  agen- 
cies.    He  should,  therefore,  be  a  well  trained  educational  leader 


University  of  North  Carolina 


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and  executive  and  chosen  for  administrative  and  professional 
fitness.  The  difficult  task  he  is  called  to  do  requires  a  high  degree 
of  skill  which,  can  be  acquired  by  special  training  only  or  by 
long  experience.  And  for  this  reason,  county  boards  of  educa- 
tional control  should  be  encouraged  to  use  a  wider  field  than  the 
county  for  the  selection  of  this  official  and  should  be  given  freedom 
to  seek  anywhere  for  leadership  and  competency  for  this  impor- 
tant position,  without  reference  to  residence,  politics  or  sex.  The 
tenure  of  office  should  be  longer  than  two  years;  and  after  a 
reasonable  period  to  prove  the  superintendent's  ability,  that  officer 
should  be  appointed  perhaps  for  an  indefinite  term,  certainly  for 
a  term  of  four  or  ^\e  years,  and  at  a  salary  in  keeping  with 
the  importance  of  the  work.  By  these  means  the  office  could  in 
time  be  removed  from  the  deadening  influence  of  politics — an  ill 
from  which  it  has  too  long  suffered  in  N"orth  Carolina. 

Interest  should  therefore  center  not  so  much  in  the  officer  as 
in  the  office,  not  in  the  superintendent  but  in  the  superintendency. 
The  office  of  county  superintendent  needs  to  be  given  a  ne^v 
meaning  and  a  new  life,  for  without  it  the  county  superintendent 
of  schools  will  continue  to  be  the  clerk  and  the  political  appendage 
which  tradition  and  an  archaic  system  have  made  of  him.  The 
office  can  become  more  effective  if  the  routine  of  it  can  be  sys- 
tematized and  reduced  to  a  minimum.  This  can  be  done  by  giving 
the  superintendent  sufficient  clerical  and  supervisory  assistance 
to  relieve  him  of  the  tedious  and  lifeless  details  of  the  work. 
Proper  business  principles  and  methods  should  be  employed  if 
the  work  of  directing  the  schools  is  ever  to  be  regarded  with  the 
same  importance  as  that  which  attaches  to  successful  business 
organization.  Nothing  destroys  public  confidence  so  thoroughly 
and  so  readily  as  haphazard,  careless,  or  unsystematic  methods  of 
doing  business,  and  nothing  so  inspires  public  confidence  as  the 
use  of  sound  business  principles. 

In  addition  to  the  use  of  business-like  principles,  there  is 
urgent  need  for  keeping  the  public  informed  thoroughly  and  hon- 
estly of  the  school  work.  The  schools  are  public  in  character. 
They  are  established  and  should  be  administered  for  the  public 
good.  The  public  is  entitled  to  intelligible  acquaintance  with 
their  operation.  Correct  and  wholesome  information  should  be 
made  available  to  the  public  through  the  press,  bulletins,  circular 
letters,  etc.  It  is  better  to  take  time  to  inform  the  public  in 
safe  ways  than  to  allow  misinformation  to  work  disaster  at  the 
time  a  well  informed  public  is  needed.  Expert  financial  and 
uniform  accounting  assistance  is  greatly  needed  in  the  work  of 
the  county  superintendency  of  schools. 


126 


Attainable  Standards  in  Municipal  Pbograms 


1' 


4.     Closer   and  more  effective  supervision.     One  large  secret 
of  better  educational  work  in  urban  communities  is  due  to  better 
supervision  of  the  urban  schools.     The  compactness  of  organiza- 
tion aids  coordination  and  directness  and  promotes  cooperation 
of  teachers,  school  officials  and  the  public  generally.     Here  is 
another  argument   for  the  consolidation  of  the  smaller  schools 
into  larger  schools.     The  rural  teacher  of  N'orth  Carolina  suffers 
from  lack  of  frequent  personal  contact  with  other  teachers  and 
is  deprived  of  the  stimulation  and  enthusiasm  that  come  from 
professional    assistance.      Provision   should   be   made   for   super- 
visory assistance  for  the  superintendent  whose  professional  work 
IS   now  necessarily  incidental,  accidental,  or  haphazard   inspec- 
tion.    The  state  should  make  legal  and  adequate  provision  for 
such  assistance  in  every  county  and  require  the  county  board  to 
provide  a  special  supervisor  for  every  seventy-five  or  one  hundred 
teachers  in  the  county. 

5.     Kational  plans  of  rural  school  consolidation  and  transporta- 
tion.   Most  of  the  inequalities  that  now  exist  in  public  education 
m  mrth  Carolina  can  be  removed  by  the  consolidation  of  the 
small,  weak,  poorly  graded  and  poorly  taught  schools  into  large, 
strong,  well  graded  schools,  properly  located,  adequately  equipped, 
effectively  taught  by  competent,  well  trained  teachers.     The  pur- 
pose of  the  consolidated  school  is  to  give  larger  and  better  edu- 
cational   service    to    the    community.      Intelligent    consolidation 
means  a  larger  taxable  area,  better  buildings  and  equipment,  better 
teachers,  more  nearly  complete  courses  of  study,  better  grading 
and  classification  of  pupils,  closer   and  more  intelligent   super- 
vision, more  wholesome  and  attractive  community  spirit,  richer 
and  stronger  community  life.     The  minimum  standard  for  rural 
school  consolidation  and  transportation  requires  the  school  au- 
thorities to  consider  the  needs  of  the  county  at  large  rather  than 
the  desires  of  special  localities.     The  county  should  be  viewed  as 
a  whole  instead  of  by  parts  or  local  districts. 

Given  an  intelligent,  well  trained,  progressive  county  superin- 
tendent of  vision,  tact,  resourcefulness,  who  is  the  minimum 
essential  of  a  progressive  county  school  system,  most  of  these 
other  minimum  standards  will  be  attained  in  time. 


< 


University  of  I^orth  Carolina  127 

AN  ATTAINABLE  STANDARD  OF  MUNICIPAL  AND 
COUNTY  LIBBABT  SERTICE 

L.  R.  Wilson,  Kenan  Professor  of  Library  Administration,  University 

of  North  Carolina 

Massachusetts,  with  a  library  in  every  town  within  its  borders 
except  one,  has  long  been  cited  as  furnishing  the  best  example  of 
library  service  for  the  entire  population  of  a  state. 

Recently,  however,  Massachusetts  has  ceased  to  be  considered 
as  furnishing  the  most  appropriate  example  of  library  service  for 
country  dwellers  in  sparsely  settled,  agricultural  areas  such  as 
iN'orth  Carolina  where  the  county  rather  than  the  town  is  the 
unit  of  government.  California,  with  its  county  library  located  at 
the  county  seat  or  prominent  town,  and  organized  and  admin- 
istered on  a  county  basis,  with  numerous  county  substations,  has 
taken  Massachusetts'  place,  with  the  result  that  its  plan  is  now 
receiving  general  recognition  in  the  rural  South,  and  particularly 
in  IN^orth  Carolina. 

Although  no  library  in  I^orth  Carolina  has  been  organized  on 
strictly  county  library  lines,  a  beginning  in  successful  county 
library  work  has  already  been  made  in  the  State.  In  Guilford, 
Durham,  and  Forsyth  counties,  the  county  commissioners  or  the 
county  boards  of  education,  singly  or  jointly,  have  supplemented 
the  appropriations  made  by  the  cities  for  library  purposes.  In 
return  the  libraries  have  been  thrown  open  to  all  the  residents  of 
the  counties  either  through  direct  service  at  the  county  seat,  or 
through  school  or  branch  libraries  located  in  all  sections  of  the 
counties  and  served  either  by  parcels  post  or  by  automobiles  or 
wagons. 

While  practice  has  in  no  wise  been  standardized,  several  facts 
concerning  county  libraries  have  been  definitely  established.  First 
of  all,  the  characteristics  of  the  county  library  have  become  well 
known.    They  are: 

1.  It  serves  the  citizenship  of  an  entire  county  rather  than  of 
a  town  or  city. 

2.  It  is  supported  by  a  direct  tax  (usually  not  less  than  one 
and  one-fourth  cents  nor  more  than  five  cents  on  the  $100)  on  the 
total  assessed  property  of  the  county,  or  an  appropriation  is 
made  by  the  county  commissioners  to  a  library  already  established 
by  a  town  within  it,  in  return  for  which  books  are  made  available 
to  town  and  county  citizens  alike. 


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J  28        Attainable  Standards  in  Municipal  Pbogbams 

3.  It  is  administered  by  a  special  library  board  similar  to  the 
county  board  of  education,  which  may  receive  lands,  buildings, 
gifts,  books,  etc  for  the  use  of  the  library,  choose  the  librarian 
and  assistants,  determine  the  number  and  location  of  branch  libra- 
ries or  loan  stations  throughout  the  county,  or  contract  with 
a  library  already  in  the  county  for  services  to  the  entire 
citizenship. 

Again,  by  reason  of  its  centralization,  its  distinctive  advantages 
nave  been  clarified :  ^ 

1.  It  has  financial  support  sufficient  to  provide  books  of  a  varv- 
ing  character  and  in  sufficient  quantity  to  meet  the  requirements 
or  all  classes  of  citizens. 

2.  It  can  estabHsh  a  unified  system  of  service  to  isolated  settle- 
ments, schools,  and  villages,  thereby  reaching  at  regular  intervals 
every  section  of  the  county.  A  book  wagon  or  automobile  can 
be  run  on  a  regular  fortnightly  schedule,  and  can  serve  every 
local  station.  "^ 

9  It  can  employ  an  efficient  librarian  and  assistants  in  suffi- 
cient number  to  administer  the  work  effectively. 

tl^V^""^^  ^iT^^*?  *^^  "ses  of  other  county  organizations,  such 
as  the  board  of  health  and  the  board  of  education. 

5.  It  promotes  unity  of  interest  and  cooperation  in  all  under- 
takings having  as  their  object  the  betterment  of  the  county. 

Furthermore,  its  support  lays  no  special  burden  upon  any  par- 
ticular group,  but  distributes  it  over  the  whole  county. 

In  promoting  county  library  work  in  the  average  N"orth  Caro- 
hna  county,  whether  on  a  strict  county  basis  or  in  cooperation 
mth  a  municipal  library^  the  following  minimum  requirements 
should  be  met  to  insure  efficient,  adequate  service: 

1.  A  total  annual  income  of  at  least  $7500  should  be  provided, 
be^enf  lo^ed  ^'^''^™'''  ^'^'^  assistant  librarians,  and  janitor  should 

3.  From  $1200  to  $2000  should  be  set  aside  annually  as  a  book 
and  magazine  fund. 

4.  A  definitely  planned  system  of  delivery,  either  through  par- 
cels post  or  by  passing  automobile,  reaching  all  the  schools  and 
other  special  local  groups,  should  be  organized 


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Univeksity  of  ITobth  Carolina 


SPECIAL  FEATURES  OF  THE  CONFEBENCE 


129 


r\ 


The  reports  on  the  county  aspects  of  the  conference,  it  should 
'be  remembered,  are  not  intended  to  be  complete.  Rather,  only 
the  few  that  tend  to  link  up  town  and  county  are  utilized.  The 
very  excellent  plan,  presented  by  Commissioner  Fatten,  Chairman 
of  the  Buncombe  County  Commissioners,  and  president  of  the 
!N'orth  Carolina  Association  of  County  Commissioners  to  have 
each  county  provide  one  or  more  paid  commissioners,  will  be  dis- 
cussed and  presented  full  at  the  next  year's  meetings  of  the  Com- 
missioners. Likewise  the  discussions  of  Mr.  Henry  Dwire.  Pro- 
fessor Branson,  Mr.  Burke  Hobgood,  Mr.  Roy  Brown,  Mr.  H.  W. 
Dodds,  and  others,  are  reserved  for  the  special  consideration  of 
county  problems  of  administration. 

It  was  the  wish  of  the  conference,  and  of  the  University,  after 
the  County  Commissioners  had  voted  to  have  their  annual  meet 
at  Chapel  Hill,  to  await  that  meeting  for  the  special  emphasis 
on  county  administration,  and  thus  to  turn  over  to  them  in  their 
own  program  and  their  own  methods,  the  discussion  of  county 
affairs.  In  this  way,  the  first  conference  tended  to  turn  its  em- 
phasis to  town  problems  and  their  relation  to  county  administra- 
tion. The  University  will  offer  its  facilities  in  August  of  this 
year  to  the  county  commissioners  in  such  ways  as  they  may  desire. 

Two  special  observations  should  be  made  concerning  the  con- 
ference. While  it  was  a  very  successful  conference  from  every 
viewpoint,  there  were  two  deficiencies,  among  others,  that  may  be 
pertinent  to  this  report.  The  first  was  that  not  enough  officials 
were  present.  The  registration  of  out-of-town  officials  of  some 
seventy-five,  should  have  been  at  least  one  hundred  and  fifty.  It 
is  a  very  real  part  of  the  opportunity  of  an  official  to  perform 
adequate  services  to  learn  how  to  perform  them  through  exchange 
of  ideas  and  acquisition  of  information.  The  second  point  was 
similar:  The  officials  left  too  hurriedly;  groups  were  leavinsr  just 
as  Mr.  Knowles  was  giving  his  lecture  on  city-planning,  and  some 
of  those  who  left,  later  found  it  necessary  to  have  Mr.  Knowles 
take  up  matters  again  with  them.  It  is  a  difficult  matter  for  busy 
officials  to  find  time  for  all  things,  but  it  is  hoped  that  the  next 
conference  can  be  guaranteed  of  sufficient  practical  value  to  enable 
all  officials  to  remain  at  lecst  one  full  day  and  evening. 

The  Local  Committees 

The  work  done  by  the  two  committees  was  adequate  for  a  larger 
attendance,  and  deserved  the  suitable  commendation  which  the 


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130 


Attainable  Standards  in  Municipal  Pboqrams 


results  of  the  conference  seem  to  justify.  Of  special  importance 
was  the  little  reception  given  at  five  o'clock  to  the  visiting  dele- 
gates hy  the  members  of  the  Community  Club  of  Chapel  Hill. 
The  committees  follow. 


« 


COMMITTEE  ON  PROGRAM  AJSTD  MEETi:NrGS 

E.  C.  Branson,  Chapel  Hill  C.  W.  Roberts,  Greensboro 

H.  W.  Dodds,  New  York  D.  D.  Carroll,  Chapel  Hill 

Gallatin  Roberts,  Asheville  L.  R.  Wilson,  Chapel  Hill 

Howard  W.  Odum,  Chapel  Hill. 

COMMITTEE  OlST  LOCAL  ARRAISTGEMENTS 

Howard  W.  Odum,  Chapel  Hill    Miss  Hattie  Berry,  Chapel  Hill 
S.  H.  Hobbs,  Chapel  Hill  Harold  D.  Meyer,  Chapel  HiU 

Mrs.  I.  H.  Manning,  Chapel  Hill  Mrs.  T.  J.  Wilson,  Chapel  Hill 
Burke  Hobgood,  Durham  Mrs.  Moody  Durham,  Chapel  Hill 


TWO  MORE  ATTAIl^ABLE  STAJ^DARDS 

A  Maximum  Membership  of  North  Carolina  Towns  and  Cities 
in  the  North  Carolina  Municipal  Association,  with  active  Par- 
ticipation and  Benefits. 

A  One  Hundred  Percent  Membership  of  Counties  in  the  North 
Carolina  Association  of  County  Commissioners,  with  Interested 
Agencies  and  Individuals  as  Honorary  Members. 


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4 


Upon  application  the  following  publications  of  the  Uniyersity  Ex- 
tension Division  will  be  sent  you  free  or  for  the  price  listed: 

UNIVERSITY  OP  NORTH  CAROLINA  EXTENSION  BULLETIN 

Vol.    I,  No.  1.  University  Extension  Service,    Free. 

Vol. 

Vol. 

Vol. 

Vol. 

Vol. 


I,  No.  2.  Extension  Lecture  Service.     1921-1922.     Free. 
I,  No.  3.  Correspondence  Courses.  1921-1922.    Free. 
I,  No.  4.  Bureau  of  Puhlic  Discussion. 
I,  No.  5.  Social  Service  and  Public  Welfare.    Free. 
I,  No.  6.  The  Rural  Playground.    Price  10c. 


.  THE  UNIVERSITY  OF  NORTH  CAROLINA'  RECORD 

EXTENSION  SERIES 

8.  Cooperative  Institutions  Among  the  Farmers  of  Catawba  County. 

Price  25c. 

9.  Syllabus  of  Home-County  Club  Studies.    Price  25©. 
12.  The  Teaching  of  County  Geography.    Price  25c. 

21.  Measurement   of   Achievement    in   the   Fundamental    Elementary 

School  Subjects.    Price  25c. 

22.  Public  Discussion  and  Debate.   (Revised.)   Price  25c. 

23.  The    North   Carolina    Club   Year    Book— Wealth    and    Welfare   In 

North  Carolina.    Price  25c. 
25.  Local  Study  Clubs.  Price  25c. 
27.  Standard  Educational  Tests  and  Measurements  as  a  Basis  for  a 

Cooperative  Plan.     Price  25c. 

29.  Comparative  Results  of  a  State-wide  Use  of  Standard  Tests  and 

Measurements.    Price  25c. 

30.  The  North  Carolina  Club  Year  Book —  County  Government  and 

County  Affairs  in  North  Carolina.    Cloth.    Price  $1.25. 

31.  Compulsory  Military  Training.     Price  25c. 

32.  A  Study  of  the  Public  School  in  Orange  County,  North  Carolina. 

Price  25c. 

33.  The  State  and  County  Council.  Price  25c 

36.  Plays  for  Amateurs.    Price  50c. 

37.  Further  Use  of  Standard  Tests  and  Scales  as  a  Basis  for  a  Co- 

operative Research  Plan.    Price  25c. 

38.  The  Construction  of  Schoolhouses.     Price  50c. 

39.  The  Teaching  of  Geometry.     Price  50c. 

41.  N.  C.  Club  Year  Book — State  Reconstruction  Studies.    Price  75c. 
1.  (Special   Series.)      Design   and   Improvement  of   School    Grounds. 
Price  75c. 


STAMPS,  CHECK,  OR  MONEY  ORDER  ACCEPTED 


ADDRESS:    UNIVETISITY    EXTENSION    DIVISION, 

Chapel  Hitx,   N.  C. 


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